AUCKLAND TRANSPORT PLAN 2009

The Auckland Transport Plan is the flagship ten year planning document for implementing an integrated and sustainable Auckland transport system. AUCKLAND TRANSPORT PLAN 2009

The Auckland Transport Plan is the flagship ten year planning document for implementing an integrated and sustainable Auckland transport system.

About the Auckland Transport Plan

The Auckland Transport Plan has been developed by the Auckland Regional Transport Authority in collaboration with the Auckland Regional Council, KiwiRail and Auckland, Manukau, Waitakere and North Shore Cities, Papakura, Rodney and Franklin District Councils, and the New Zealand Transport Agency. Contents FOREWORD 3 EXECUTIVE SUMMARY 4 1 INTRODUCTION 8 1.1 Auckland Transport Plan 8 1.2 The need for an effective transport system and plan 8 1.3 Transport impacts 13 1.4 Policy framework 20 1.5 ATP priority areas 22 1.6 Funding 23 2 IMPLEMENTATION PLAN 2009-2019 24 2.1 Long-term transport plan 24 2.2 Areas for action 26 2.3 Ten-year plan 31 3 BALANCING FUNDING AND EXPENDITURE 36 3.1 Funding requirements 36 3.2 Funding pressures 38 3.3 Funding allocation 39 3.4 Funding priorities 40 3.5 Funding and financing options 41 3.6 Summary 41 4 ATP PROGRESS 42 4.1 What Auckland needs 42 4.2 Review of the 2007 ATP 42 4.3 Achieving strategic focus and planning responses 43 4.4 Performance of the transport system to achieving outcomes 48 4.5 RLTS funding allocation 48 APPENDIX 51 APPENDIX 1: REGIONAL STRATEGIC FOCUS AREAS 51 APPENDIX 2: THE ATP PRIORITISATION PROCESS 54 APPENDIX 3: RLTS OBJECTIVES AND INDICATORS 57 GLOSSARY 66

Disclaimer The values in the Auckland Transport Plan 2009 are highly dependent on the values provided by all agencies for their projects, packages and funding availability. ARTA has used every endeavour to ensure that the funding and expenditure figures are as accurate as possible at time of printing. As projects progress through the various stages of investigation, design, construction and delivery, cost and funding availability become more certain. There have been a number of changes over the last 12 months in the transport environment with the merger of Transit New Zealand and Land Transport New Zealand into the New Zealand Transport Agency, Government buy-back of the national rail network and establishment of KiwiRail. The impact of these changes, and the changes to Auckland governance, will have a determinant effect on this, and future Auckland Transport Plans.

1 List of Figures, Maps and Tables FIGURES Figure 1. Auckland’s population growth to 2041 10 Figure 2. Population growth by regional council 10 Figure 3. PT trips and GDP per capita (2007/08 US$) 11 Figure 4. Average daily vehicle and freight movements on key State highways and arterial roads 12 Figure 5. Hierarchy of plans 21 Figure 6. Annual decongestion benefit of each additional user of the RTN, QTN, and LCN networks 30 Figure 7. Indicative expenditure by category 36 Figure 8. Funding streams for land transport in Auckland 38 Figure 9. Predicted performance of the road networks in 2016 39 Figure 10. LTP assessment for the three-year period 2006/07-2008/09 and the RLTP 2009/10-2011/12 49 Figure 11. Total RLTP compared to RLTS targets 50

MAPS MAP 1. Long-term Transport Plan 25 MAP 2. Construction projects 2009-12 32 MAP 3. Auckland Regional Cycle Network 35

TABLES Table 1. Capacity of different modes to move people 11 Table 2. New and improved roads 31 Table 3. Transport planning 33 Table 4. Walking and cycling 33 Table 5. Public transport, demand management and rail 34 Table 6. Indicative expenditure 2008/09 to 2018/19 ($m) 37 Table 7. Planned versus actual expenditure 2006-2008 ($’000) 42 Table 8. Regional transport packages 43 Table 9. North: Strategic focus and outcomes 44 Table 10. West: Strategic focus and outcomes 45 Table 11. Isthmus: Strategic focus and outcomes 46 Table 12. South: Strategic focus and outcomes 47 Table 13. Rural Strategic focus and outcomes 47 Table 14. 2005 RLTS funding allocation 48

2 FOREWORD

Auckland, a growing international city, is critical to New Zealand’s success and dependent upon a safe, efficient and sustainable transport system.

The Auckland Transport Plan (ATP) is the region’s flagship ten-year transport planning document.

The success of Auckland, New Zealand’s major commercial centre and home to one third of New Zealand’s population, is vital to New Zealand’s long- term prospects.

Transport strongly influences economic development. Good transport systems make it easy for people to access jobs and for goods to reach their markets.

Auckland Airport, Ports of Auckland and the region’s Given this funding challenge, in respect of available motorway and arterial road, rail and public transport regional and central government funding, careful networks constitute a multi-modal transport system choices need to be made between projects and their for the effective movement of goods, services timing and effective prioritisation of projects. and people. The complete system provides a The Government’s Policy Statement (GPS) for the fundamental cornerstone of an internationally prioritisation of funding for land transport, which competitive Auckland, leading to sustained came into effect on 1 July this year, must be taken economic growth and jobs. into consideration. The Government is particularly While the plans and strategies supporting the ATP concerned to see better integration of land use, generally have a ten-year timeframe, in the interests transport planning and urban design activity of future-proofing for the growth and development contributing to national economic growth and the region will experience, prudent plans take a productivity. longer-term view. Hence, the ATP makes allowances The ATP provides a rigorous approach to project for investigations towards projects such as an prioritisation based on a set of criteria designed to additional Waitemata Harbour Crossing, an inner city direct available resources towards projects which (CBD) underground passenger rail tunnel and rail to will address the region’s most pressing transport the airport. challenges, thus assisting to advance Auckland’s Aside from this long-term strategic view, highlights and therefore New Zealand’s economic imperatives. of the ATP include electrification of the rail network, completion of the Western Ring Route, integrated fares and an integrated ticket, AMETI - the Auckland Rabin Rabindran CHAIRMAN Manukau Eastern Transport Initiative, new and ARTA BOARD improved ferry infrastructure, and walking and cycling initiatives.

Funding in such a small country is always an issue. Taking into consideration funding for the additional Waitemata Harbour Crossing, rail to the airport and the CBD rail tunnel projects, the total funding requirement could be in excess of $22 billion.

3 The continued success of Auckland, as New Zealand’s major commercial and population centre, and only city of international scale, is vital to New Zealand’s long-term prospects. To ensure this success, and the future wellbeing of the growing Auckland region, it is essential to plan and implement world-class transport infrastructure and services.

EXECUTIVE SUMMARY

The Auckland Transport Plan (ATP) is Delivering transport to support the Auckland region’s ten-year transport Auckland’s growth planning document, to be viewed in a Auckland’s rapidly growing population and economy long-term context. mean that while plans and strategies supporting the It brings together projects to implement the ATP generally have a ten-year timeframe, the ATP transport policies of the Government and region, must take a longer-term view to ensure the region creating a safe, affordable, integrated and can deliver the transport system envisaged. sustainable transport system for people and freight The ATP allows for investigations related to projects in a growing and prosperous Auckland. such as an additional Waitemata Harbour Crossing, The ATP unites the strategies, plans, projects and an inner city underground passenger rail tunnel, packages developed by ARTA, local authorities, the rail to the airport, and long-term strategic studies New Zealand Transport Agency (NZTA) and KiwiRail, supporting Auckland’s growth and prosperity. identifying the use of different modes of transport to ensure optimal and sustainable use of resources. Funding This flagship document replaces the 2007 Auckland This ATP will require funding of almost $15 billion Transport Plan. over the next ten years. This amount does not Auckland’s success, as New Zealand’s major include the full construction of the SH20 Waterview commercial centre and home to one third of all New connection, CBD rail tunnel, rail to the airport, or Zealanders, is vital to New Zealand’s long-term an additional Waitemata Harbour Crossing, which prospects. collectively could bring funding requirements to more than $22 billion. Transport strongly influences economic development. Transport corridors are the arteries Currently, there is a mismatch between territorial of local and international trade. Planning and authority allocations for local roading and NZTA’s development of world-class transport infrastructure funding allocation in the National Land Transport and services for Auckland is vital. Programme (NLTP), with councils projecting significantly less spending than NZTA funding The Ports of Auckland, Auckland Airport and accommodates. While there has been significant the region’s motorway and arterial road, rail and Crown funding for the Auckland region in recent public transport networks are essential for the years, there are still important gaps in the movement of goods, services and people. They region’s transport system. For example, rapid are fundamental to an internationally competitive transit networks across Auckland are of regional Auckland. importance and should attract increased regional and/or central government funding. However, these projects are often delayed because local authorities cannot fund up to 50% of their cost under current funding rules. 4 Auckland, a growing international city, is critical to New Zealand’s economic hub and depends upon a safe, efficient and sustainable transport system.

Benefits of an integrated plan The Auckland region’s priority outcome areas are: Transport planning has moved from a focus on g Greater focus on regional arterial roads outputs to a focus on outcomes. This ATP aligns g Emphasis on safety engineering for streets and roads transport planning with land use, and economic, g Optimising the existing transport system to move social and environmental objectives, to ensure people and goods transport investments are allocated to achieve the g Strong focus on transport investments that support the region’s important outcomes. Benefits will include: Regional Growth Strategy, and integrated land use and transport planning g Better coordination of residential and commercial development with the transport system g Completion of key elements of strategic roading, passenger transport, walking and cycling networks g Certainty over project timing for the construction sector, reducing construction costs and accelerating project delivery g A transport network connecting and supporting a vibrant, prosperous Auckland The ATP is aligned with central government’s transport objectives. It is also the main method by which ARTA will implement the Regional Land Transport Strategy (RLTS), the overarching policy document for Auckland transport planning. The ATP provides ARTA with the framework for the development of the tri-annual Regional Land Transport Programme, and is a reference for KiwiRail in preparing rail network development plans.

Prioritisation Funding pressures necessitate careful choices and trade offs between transport projects, and their timing, to ensure the right projects receive funds at the right time. The ATP provides for a rigorous approach to project prioritisation to address the region’s most pressing transport needs and to advance the strategic objectives of the RLTS. Providing people with choices about how they get around is one of the major goals of the Auckland Transport Plan, particularly making healthy and sustainable options to move people and goods more attractive

5 HIGHLIGHTS OF WHAT THIS PLAN DELIVERS FOR AUCKLAND

g Electrification of the Auckland rail network Auckland’s rail system is to be electrified. A modern electrified rail system has significant performance advantages over the current and even new diesel systems for urban rail operations, including better acceleration between stations and the ability to operate high frequency trains through tunnels. In addition, electric trains provide environmental benefits such as improved air quality and reduced noise and air vibration, so they are compatible with the intensified development along rail corridors envisaged by the Regional Growth Strategy. Electrification will enable ARTA to provide fast, reliable journeys at 10-minute frequencies and attract 17 million passengers to rail by 2016. It will also future-proof the Auckland rail network and provide for the development of the CBD rail tunnel. The Auckland region will continue to work with KiwiRail to ensure delivery of this project, critical for the continued growth of Auckland.

g CBD Rail Tunnel The decision to electrify the rail network has allowed work to begin on protecting and constructing the CBD rail tunnel. This will allow higher train frequencies across the entire rail network, as well as providing new stations in the heart of the CBD and future extensions to an electrified network such as to the airport. Overall, this project will increase the accessibility of the CBD, New Zealand’s largest concentration of economic activity, to more than half a million people within 30 minutes travel time by rail, which is completely free of road congestion. This will release the economic potential of Auckland’s CBD and growth centres, and lead to economic benefits estimated at $2.4 billion.

g Western Ring Route Finishing the Western Ring Route network with the completion of the SH20-SH1 Manukau Link, SH18 extension and the Waterview Connection will provide a complete alternative to State Highway 1 from Manukau through to Albany. The 5.5km Waterview proposal is for a combined tunnel and surface option, which will be funded through the current transport budget at about $1.4b. The completion of the Western Ring Route will improve transport links for Aucklanders and businesses and provide more reliable travel time to Auckland Airport.

g AMETI – The Auckland Manukau Eastern Transport Initiative AMETI is a three-way (Auckland City, Auckland Regional Transport Authority and Manukau City) project that will deliver increased passenger transport, demand management and economic development opportunities for the south-east metropolitan Auckland region. The first stage of the project will include the Panmure Transport Plan to support business and residential growth planned for Glen Innes, Panmure, Mt Wellington and Sylvia Park, by improving roads, bus lanes, walking and cycling, the addition of a pedestrian/cycle lane on the Panmure Bridge and improvements from Panmure through to Pakuranga and along Ti Rakau Drive, including a dedicated bus route.

g New Lynn Undergrounding New Lynn station is one of the busiest stations on Auckland’s rail network, and with projected population growth in the region, will be an important hub in Auckland’s transport network. Its development will allow for more frequent and reliable passenger services and improve pedestrian safety and traffic flow around the rail network. The rail station is part of an integrated bus and train transport interchange at the junction of Clark Street, Totara Avenue and Memorial Drive in New Lynn. The project forms part of the overall KiwiRail DART 6 rail corridor project, which separates the rail corridor through New Lynn from the local roading and pedestrian network via ‘grade separation’.

g Integrated fares and ticketing Travel by public transport will be made easier and simpler with the introduction of the new Integrated Ticketing System for Auckland, which will be based on smartcard technology. The new smartcard will allow Aucklanders to travel on any form of public transport using just one card, utilising a simple touch-on, touch-off system. The smartcard will contain ‘stored value’; it will automatically calculate the cheapest fare for the journey and deduct this from the “stored value” associated with the card. The smartcard will be able to be used on all operators and modes of transport in Auckland’s public transport environment including buses, trains and ferries. It is anticipated that integrated fares and smartcard ticketing will result in faster boarding times, easier transfers, and convenient payment options as part of ARTA’s focus on delivering equitable and quality access to our public transport networks.

g Walking and cycling initiatives Delivering on the regional cycle network will ensure that the Auckland region makes its contribution to the New Zealand Transport Strategy targets for active modes. Key walking and cycling projects to be delivered over the next three years and beyond include providing walking and cycling facilities on local roads affected by the SH20-SH1 motorway connection project, design and construction of a cycle lane adjacent to SH1 between Northcote Road and Constellation Drive, design and construction of a cycle connection between SH1 and SH16 in the Auckland CBD, and over 38km of off-road walking and cycling in FlatBush. A number of neighbourhood accessibility programmes will also be implemented to improve walking and cycling in and around town centres.

g Safety engineering Safety engineering for streets and roads will reduce road trauma, which currently costs the region $990 million each year. Engineering and enforcement for safety continue to be a key part of overall transport expenditure. While safety is a given in all new projects there is also a need to continue to focus on improving safety for all users of the transport system. All road controlling authorities have a number of crash reduction studies underway across the region.

g Additional Waitemata Harbour Crossing Protecting the route for the additional Waitemata Harbour Crossing will improve accessibility for all modes across the Waitemata Harbour. While tunnels are proposed for the new road and rail connections, these new routes will allow for the reallocation of space on the Auckland Harbour Bridge for both walking and cycling across the Waitemata Harbour.

6 The ATP gives effect to the RLTS objectives of: Development of an international-scale metropolis, g Assisting economic development however, does not rely solely on the development of the transport system. Integrating land use g Promoting safety and personal security and transport will lead to a transport system that g Improving access and mobility balances the needs of the environment and of g Protecting and promoting public health the economy. While the transport system allows g Ensuring environmental sustainability the population of Auckland and wider economy to g Supporting the Auckland Regional Growth Strategy access jobs, social opportunities and recreational pursuits, use of the system has impacts to be g Achieving economic efficiency managed. The ATP considers goals in the New Zealand Transport Strategy and the Government Policy The transport sector accounts for 32% of New Statement for 2009/10–2014/15 including: Zealand’s energy requirements. Transport produces g Improvements in journey times 18% of national carbon dioxide emissions, of which g Easing of severe congestion Auckland contributes 85%. Sources of energy are finite, in particular oil. Optimistic estimates of peak g More efficient supply chains oil production forecast that global decline will not g Better use of existing transport capacity begin until 2020 or later. It could be sooner. g Better access to markets Transport demands create congestion when demand Transport opportunites and for road space exceeds supply. Congestion is challenges estimated to cost around $1 billion annually.

The Auckland region is growing more quickly than Providing for a growing economy, integrating any other region in New Zealand. Such growth will transport and land use, managing the use of place a major demand on transport infrastructure, finite resources, addressing climate change and requiring a transport system that anticipates and environmental impacts are all challenges and accommodates change. Transport shapes the way opportunities to be considered in this ATP. cities develop.

7 2009 � 2019

1. INTRODUCTION

1.1 Auckland Transport Plan

The Auckland Transport Plan (ATP) has been prepared by the Auckland Regional Transport Authority (ARTA) as a single, comprehensive transport plan for the region until 2019 and beyond. Outlining priorities and the phasing of projects, the ATP sets out a coordinated programme for the delivery of an integrated, efficient transport system.

ARTA has developed the ATP in collaboration with the New Zealand Transport Agency (NZTA), Kiwi Rail, the Auckland Regional Council, and the seven territorial authorities in the region (Rodney District, North Shore City, Waitakere City, Auckland City, Manukau City, Papakura District and Franklin District Councils), taking into account District Plans, and local councils’ Long Term Council Community Plans. The ATP covers the entire Auckland region, including the area of Franklin District that is located within Environment Waikato’s boundary.

The region’s vision is for an integrated road, rail, bus, ferry, cycle and walking network that gives effective access to transport for people and goods, including an integrated passenger transport system that provides an attractive, viable and regionally agreed alternative to the use of private vehicles. There will be greater choice as to how people and goods move around Auckland, including the rural areas, between Auckland and the rest of New Zealand, and internationally.

The ATP will assist cooperative action between all agencies involved in transport; it will enable the prioritisation of funds, and it will raise awareness of the funding issues faced by the region, in particular those created by fragmented governance and funding arrangements. 1.2 The need for an effective transport system and plan Transport is, directly or indirectly, an important part of life for everyone. As New Zealand’s main commercial and population centre, and only city of global scale, Auckland needs first-rate transport infrastructure and services to remain internationally competitive. An effective system will allow for growth, help to attract and retain business, enhance the experience of visitors, be environmentally sustainable, and improve the quality of life for residents.

8 � 2009 2019 Growth Auckland is currently home to more than 1.4 million residents – a third of New Zealand’s population – with around 25,000 more added every year. It is expected there will be two million people living in metropolitan Auckland before 2036 (see figure 1). This anticipated growth alone is larger than the current population of any other New Zealand city (see figure 2).

The number of visitors to Auckland is estimated to increase from approximately 12 million in 2006 to 13.8 million by 2013.

The ATP looks ahead 30 years or more, to when a world-class transport system will require a completed strategic road network, including State highways and regional arterial roads, and a passenger transport network that can carry at least 200 million passenger transport trips annually between regional centres, at high frequencies and with reliable travel times.

Currently, more than $33 billion of goods are carried annually on roads within the Auckland region, with freight movements by road expected to double in number over the next 25 years.

Attracting and retaining business Auckland currently generates a third of New Zealand’s wealth. Central Auckland contains many global company headquarters and high-value-added enterprises. There is evidence that the extended Northern Region (metropolitan Auckland and the surrounding centres of Hamilton, Tauranga and Whangarei) will increasingly be treated by business as a single economy, and will continue to grow more quickly than other regions in New Zealand.

A successful economy depends on reliable infrastructure. Businesses will benefit when they can easily access markets, labour and goods, and when, with reduced travel times, more people are able to access key commercial and retail centres across the region, including central Auckland. As an example, completion of the CBD rail tunnel will result in more than 200,000 people being within 30 minutes’ travel of the Auckland CBD. The ATP enables forward planning and certainty so both public and private agencies can confidently invest in the Auckland region.

9 Figure 1. Auckland’s population growth to 2041

2,800,000

2,600,000

2,400,000

2,200,000

2,000,000

1,800,000

1,600,000

1,400,000

1,200,000

1,000,000 Urban area 800,000 Region (census)

600,000 Low forecast (stats NZ) Medium forecast (stats NZ) 400,000 High forecast (stats NZ) 200,000

0 1911 1921 1931 1941 1951 1961 1971 1981 1991 2001 2011 2021 2031 2041

Quality of life Efficient public transport systems strengthen local communities, benefit the environment and have a positive effect on people’s health (see figure 3). Figure 3 shows that internationally competitive cities, both larger and smaller than Auckland, also have excellent public transport systems, making them attractive to visit and easy to move around to work and do business. Auckland has an ageing population, many of whom have some form of disability. The ATP brings together work programmes by local authorities, NZTA and KiwiRail to ensure people of all abilities have access to Auckland’s spaces and places, by progressively improving access to public transport stops and upgrading footpaths. The Mercer 2009 quality of life survey, in which Auckland was placed fourth, includes transport infrastructure and particularily public transport as a key factor in contributing to quality of life.

Figure 2. Population growth by regional council

2,000,000

1,800,000

1,600,000

1,400,000

1,200,000 Growth to 2031 1,000,000 2006 population 800,000

600,000

400,000

200,000

0 Auckland Christchurch Wellington Waikato Bay of Otago Growth in Plenty Auckland to 2031

10 Figure 3. PT trips and GDP per capita (2007/08, US$)

140 $40,000 PT trips per capita 123 $35,000 120 GDP per capita (US$) 116 114

$30,000 100 91 89 $25,000 80 83

77 $20,000 63 60 56 48 GDP/capita (US$) 44 45 $15,000 41 40 $10,000

20 $5,000

0 $ Canberra Wellington Christchurch Ottawa Adelaide Auckland Perth Brisbane Portland Vancouver Melbourne Sydney Toronto

Rugby World Cup 2011 regional transport and traffic planning The 2011 Rugby World Cup (RWC 2011) is the biggest global sporting event of 2011 and will start and finish in Auckland. The event will be held over six weeks in September and October 2011, with 48 matches played across the country. Auckland will play host to 13 teams throughout the RWC 2011 with eight pool matches and four finals; two semifinals, the bronze final and the tournament final. Paramount to the success of RWC 2011 will be the successful delivery of the transport and traffic operations. ARTA chairs the transport and traffic workstream for the Cup, with the responsibility to develop a detailed RWC 2011 transport and traffic plan for the Auckland region. In 2008, ARTA undertook an initial public transport feasibility assessment. The assessment identified a potential 60% to 80% uptake in non-private car transport and the crucial importance of an integrated ticket in order to speed up loading times and increase efficiencies on public transport modes. It is expected that in-depth transport planning for the Cup will be completed in mid 2010, followed by the preparation of a detailed transport and traffic operations plan.

Table 1. Capacity of different modes to move people

Capacity per hour

A single lane of motorway 2,400 people Bus lanes 7,500 people Dedicated busway 12,000 people Dedicated light rail 12,000 people Auckland’s rail corridors (potential) 20,000-25,000 people

11 Managing capacity and balancing priorities Over 80% of morning peak trips are longer than 2km in length, therefore only cars, trains, buses or ferries are generally suitable for these distances, so adequate infrastructure must be provided across the Auckland region. With 1.5 vehicles for each of Auckland’s 1.4 million inhabitants, Auckland’s existing transport network is under pressure. At peak times, much of the arterial road system is congested, the rail system is struggling to meet demand and the bus network is at times unreliable, with its efficient operation further hampered by commuter traffic (see Table 1). Overcrowding of road and rail systems restricts freight movement. The ability of Auckland’s transport system to meet the burgeoning growth in travel demand will depend on future investment in its rail and bus network. This investment will free up the road network for freight, commercial and other trips that cannot be made by public transport.

Figure 4. Average daily vehicle and freight movements on key State highways and arterial roads

Av. daily traffic flows 180,000 9,000 Av. daily heavy goods flows 160,000 8,000

140,000 7,000

120,000 6,000

100,000 5,000

80,000 4,000

60,000 3,000

40,000 2,000

20,000 1,000

0 0

SH1 SH2 SH1 SH1 Road SH18 SH16 SH16 Vic Park Vic (SEART) Crossing Tauranga SH1 Wgtn SEART E of SEART Patiki Road SH18 Upper Lincoln Road Christchurch Mt Wellington Goods Flow Nielson Street Te Atatu Road Te Waipuna Road Waipuna SH20 Mangere Caribean Drive of Harding Ave Ngaruawhahia Lincoln Road N Harbour Bridge Harbour Bridge S of Bridge Ave S of Warkworth Panmure Bridge EP Highway East Highway Penrose of Universal Drive Pakuranga Bridge Nguaranga Gorge Av. Daily Heavy Daily Heavy Av. of Herdmnd Street Av. Daily Traffic Av. Newmarket Viaduct Great North Road N Key Akl. Roads of national Roads of national Regional arterials in Auckland routes significance in Auckland significance outside Auckland

Completing the State highway network will assist in relieving the congestion of the road system, however the benefits of improving State highways will be significantly reduced if the arterial roads feeding the State highways are too congested to cope with the additional flows created by the improved motorways. It is important to consider Auckland roads including State highways as one inter-related network, in which motorways and arterial roads are dependant upon each other. Many of Auckland’s urban arterial roads carry far more total and commercial traffic than most State highways outside the metropolitan urban limit – as shown in Figure 4.

Transport and land use Transport and land use influence urban form, which is an important determinant of travel patterns. The history of urban growth across the Auckland region, shows that changes in land use have a direct effect on urban form in that it led to significant urban sprawl and an ever-increasing demand for travel.

Transport development is a critical shaper of urban form. Development of an international-scale metropolis, however, does not rely solely on the development of the transport system. While an effective transport system

12 is vital for Auckland’s economic, social and cultural aspirations, continued growth in road and public transport infrastructure and the consequent environmental impacts present a major challenge to the objective of sustainable development outlined in many statutory and other Auckland policy documents.

Integrating land use and transport planning is vital to delivering balanced transport and land use solutions. By shaping the pattern of development and influencing the location, scale, density, design and mix of land uses, integrated planning can help reduce the need for travel. Ensuring that it is safe and easy for people to access employment, shopping, leisure facilities and services using passenger transport, walking and cycling, and providing capacity for freight movement, leads to a transport system in which the needs of the environment and of the economy are in balance.

Providing transport infrastructure requires a long lead-in time and it is expensive. While there are significant costs in protecting future transport corridors, it is necessary to provide for expansion. The additional Waitemata Harbour Crossing and the CBD rail tunnel are two current projects designed to provide protection for future needs. Investigations are needed to determine other future connections and routes, such as completing the ‘ladder’ concept for Auckland State highways, a complete RTN network covering the Auckland region; and future long-term connections north and south of Auckland. The ATP addresses these requirements.

In future, Auckland will have a network of high-quality, high-density centres and corridors linked to a high-quality passenger transport network.

1.3 Transport impacts Transport plays a key role in the economy in that it facilitates access to employment, education, sources of trade, markets, leisure pursuits, and social activities. It enables people to move around, earn an income and achieve an acceptable standard of living. On the other hand, concerns are mounting about the detrimental effect of some forms of transport on the environment and on human health. These concerns are broadly related to energy use, climate change, and activity levels. g Current forms of motor transport consume energy, depleting natural resources and so having an adverse affect on the economy. g Burning of fossil fuels creates greenhouse gases, which are considered the major contributing factor to accelerated climate change. g Most forms of transport create emissions that are bad for human health. Noise pollution adversely affects social life.

Each transport-related effect imposes a considerable burden on society. Effects do not operate in isolation, but are inter-related.

Stormwater and air quality: two environmental challenges

13 Bus lanes – supporting a shift to public transport

Transport and energy use Transport is necessary for the functioning of the total economy: its contribution to the national Gross Domestic Product (GDP) is estimated to have been in the order of 5% over the last ten years.

Transport uses energy to make this contribution. In New Zealand, the transport sector is responsible for 86% of total oil consumption, with road transport using 87% of that total. Transport accounts for 42% of New Zealand’s total energy use – higher than any other sector; and energy is used at a rate that often exceeds the GDP growth rate. Land transport (road and rail) accounts for around 90% of total transport energy use, while private motor vehicles account for almost 90% of total passenger transport energy use.

Oil, a fossil fuel, is the main source of energy for transport. Burning fossil fuel releases carbon dioxide and nitrous oxide into the atmosphere, gases that make a major contribution to global warming and climate change. Burning fossil fuel also releases other gases and particles harmful to health. In New Zealand, the energy used for transport accounts for some 18% of total carbon dioxide emissions, and it is estimated that harmful particle emissions from vehicles contribute to the premature death of some 500 people each year.

Transport’s contribution and its costs become obvious in two issues currently receiving attention at all levels – peak oil and congestion.

Peak oil Sources of oil are finite. When oil’s maximum rate of extraction is reached globally, the rate of petroleum production will terminally decline, a phase known as oil depletion. Optimistic estimates of peak production forecast that global decline will not begin until 2020 or later, and assume major investments in alternatives will mean people in economies that are dependent on oil will not experience major lifestyle changes. They suggest the price of oil will increase quickly but then fall as other fuels and energy sources come into general use. Pessimistic predictions operate on the premise that peak production has already occurred or will occur shortly. Proactive mitigation may no longer be an option and a global depression might result in the collapse of global industrial civilisation, potentially leading to large falls in population numbers within a short period.

14 Fuel price volatility is the major effect of peak oil. Using 2007 inflation-adjusted dollars per barrel of crude oil for comparative purposes: g In 1980, the maximum price was $95–100 g In August 2003, the price was about $25 g By May 2008, the price was more than $130 g Price peaked on 30 June 2008, at more than $143

With prices much higher than those that caused the 1973 and 1979 energy crises, there were fears of a global economic recession similar to that of the early 1980s due to the impacts that high oil prices have on the global economy (referred to as price shocks). This was realised at the beginning of 2009 when the combination of high debt levels and oil price shocks caused several western nations to declare their economies officially in recession.

The effect of oil price volatility on travel patterns differs over the short and the long term. In the short term, extreme fluctuations in fuel prices will cause moderate changes in travel patterns and transport mode shifts unless demand is reduced through planned conservation measures (such as pricing) and the use of alternative travel choices. If fuel prices remain high in the longer term, there will be major changes in travel patterns, population movements, transport mode shifts and land use. Such changes, in the absence of major technological innovations, could threaten the fabric of society. High population densities in cities will affect the use of inner city infrastructure and have a flow-on effect to critical industries such as agriculture, trade and tourism.

Congestion Congestion occurs when demand for road space exceeds supply, limiting the throughput of the road. Congestion is estimated to cost $755 million annually in the Auckland region. Solutions involve building more roads (increasing supply) and/or preventing automobiles from using roads (decreasing demand). Building more roads is considered a short-term solution as increases in capacity are cancelled out by an increase in road users (more vehicles on the road). Reducing the demand for the road use by car drivers, primarily by means of various pricing methods,

Providing people with choices about how they get around is one of the major goals of the Auckland Transport Plan.

15 appears to be the only viable long-term solution because it leads to optimum use of both energy and land resources. High fuel prices for example (above $4 per gallon in the United States, $2 in New Zealand and £1 in the United Kingdom) have caused a decline in automobile counts across most motorways and highways and decreased average journey times. Demand managment measures require viable alternative travel choices to be available, such as public transport.

If economies are to depend less on fossil fuels they need an alternative energy source(s) and time to incorporate the source(s) into the daily fabric of economic life, in the short as well as the long term. The current trend in thinking is to focus on the use of electricity instead of fossil fuels as it will save time, especially over the longer term. Although this would lessen emissions and solve other environmental issues, it may aggravate congestion, as it would not necessarily lead to fewer automobiles on the roads in the long term.

Impacts of energy price increases on Auckland The effect of rising energy prices will differ across the user population according to its effect on profits and disposable income. Freight transport operators will generally pass increases in energy costs on to consumers. However, in the medium to longer term, businesses will also have to reevaluate supply chains in order to cut costs. It is especially the trade-off between inventory-holding costs and transport costs that will have to be reevaluated. For commuters, fuel price rises will affect disposable income.

The volatility of fuel prices will have an impact on transport providers such as ARTA because of:

g The need to adapt capacity over the short term to accommodate changes in demand to compensate for increases and decreases in fuel prices

g Overcrowding, due to unevenly distributed demand for services

g Limited funds and options available to cover any escalation in the costs of providing services, especially in the short term

Extreme price inflation is likely to influence the behavior of all transport users. When fuel prices are consistently high, transport users will switch to less costly modes such as passenger transport. It will then cost more to supply sufficient capacity, which can be a severe challenge with a fixed budget. The establishment of a fuel contingency fund to provide additional funds when fuel prices spike, would be consistent with contingency funds for other emergencies outside the control of transport agencies (for example, road maintenance due to flooding). It could be argued that there should be a similar fund specific to fuel price increases.

Fuel price volatility – Challenge The international economy has slowed considerably following the dramatic oil price increases of 2008, as economies in general could not handle the price shocks brought about by increases in the price of oil. However, the effects on Auckland are not clear. What is clear is that more Aucklanders are using public transport. While this is certainly due to improved services and infrastructure, the additional contribution of the current economic crisis and fuel price volatility is less certain. International experience though indicates that increasing fuel prices is likely to boost patronage of public transport. The ATP therefore assumes that fuel price volatility will:

g Have a major impact on the region’s economy

g Affect transport use by altering travel patterns and enable transport mode switching in the short term

g Change urban settlement patterns, land use, and transport options in the long term

g Influence the cost of service provision in the short and long term

g Influence the choice of infrastructure to be provided in the medium and long term

Because there is often a time lag between implementing projects and obtaining results, the first step should be to lessen the possible effects of future price shocks. At a regional level, there should be a focus on:

16 Providing public transport with the emphasis on: g Non-fossil-based mass transit modes such as electric trains g Provision and funding of public transport services that enable mode shifts between private and public transport in the short and long term g Improving transport infrastructure in order to provide an integrated public transport system

Traffic management to enable: g Greater integration of sea, road and rail transport g Priority lanes and other methods to expedite the movement of preferred passenger, commercial and freight traffic

Travel demand management to enable: g Prioritising transit-oriented development projects g Encouraging the supply and use of active modes of transport such as cycling and walking g Encouraging the application of the ‘user-pays’ principle for resource use

Travel time improvements: g Shortening travel times and improving travel time reliability between key growth centres for commercially sensitive traffic

17 At a regional level, these steps will reduce the consumption of fossil-based fuels; shorten travel times for commercially sensitive traffic by alleviating congestion; and enable changes in travel patterns, including use of more active modes, to take place in a planned environment.

At a national level, such actions could lead to fewer greenhouse gas emissions and a possible slowing of climate change.

Transport and climate change The current scientific consensus is that changes in world climate over the past several decades have been caused by increasing amounts of greenhouse gases (water, nitrous oxide, methane, and carbon

dioxide (CO2)) created by human actions, primarily the burning of fossil fuel. Reducing human impact on climate change will ultimately require eliminating fossil fuels as an energy source. Since that will take time, plans to minimise human impacts

are needed. As a major contributor to CO2 emissions, transport is particularly affected.

The principal greenhouse gas generated by transport is CO2. In New Zealand, the transport sector currently

generates 18% of total CO2 entering the atmosphere, with road transport generating 92.4% of that. These emissions are increasing by 3.2% each year.

If emissions worldwide follow a similar pattern and are left to continue unchecked, serious environmental consequences lie ahead, which will impact on transport networks.

Climate change – Challenge

The Auckland Transport Plan focuses on ways to minimise carbon dioxide emissions in the region in the short and medium term, whilst achieving regional outcomes and national goals.

In the short term, the focus is on changing travel behaviour by providing infrastructure and services that enable and encourage people to shift from private cars to public transport, and to walking and cycling. In the medium term, the emphasis is on integrating transport and land use through transit-oriented development; providing park and ride facilities at appropriate major transport interchanges, promoting mixed land use improvements around major transport interchanges, and implementing the region’s parking strategy. Travel demand would be managed mainly by applying the ‘user pays’ principle.

In the absence of technological innovation, the short-term aim is to provide transport users with choices. There is a trade-off between the costs of making mobility available and the cost of making a journey. In this process, the aim of transport demand management is that users should themselves decide on the best ways to access and use current resources.

In the longer term, the real issue is the future of the city and the region. This will require strategies, plans and actions at a national and even international level.

18 Transport and public health Transport affects public health in a number of ways, of which a decline in individual activity, air pollution, noise, and injuries, are the most important.

In New Zealand, one third of adults are not active enough to benefit their health. Adult obesity increased by 55% between 1989 and 1997. It is estimated that physical inactivity contributes to the death of 2,600 New Zealanders each year, 9% of all deaths. That figure is likely to increase in future, as current demographic trends suggest a further 4% decline in physical activity by 2021.

Although inadequate design and provision of many transport systems means that pedestrians and cyclists are vulnerable to injury, overall health gains from walking and cycling are substantial. The British Medical Association concluded that even in hostile traffic environments, the health benefits from regular walking and cycling would outweigh the risks of cycling-related injuries.

Deaths attributed to vehicle particle emissions have been termed the ‘invisible’ road toll. Research in Europe has estimated the number of deaths caused by air pollution from fine-particle emissions from vehicles to be approximately twice the number of deaths from road traffic injuries. Research in New Zealand found that for adults aged over 30 years there were 200 premature deaths attributed to emissions compared with a road toll of 243 deaths – a ratio of 0.8 to 1. Evidence is also emerging of a direct link between respiratory problems and living near busy roads, or living near roads with high levels of heavy-vehicle traffic.

Current evidence indicates that noise affects people’s ability to hear, communicate, learn and sleep; contributes to hypertension; and adversely affects psychology. Most transport makes a lot of noise. Very little information exists on transport noise in New Zealand or its effects on the health and wellbeing of communities.

Road traffic injuries are the most obvious, and significant, effect of transport on health. New Zealand’s relatively high road accident fatality rate is partly due to the large number of vehicles per person. However, the accident fatality rate per vehicle is also one of the highest in developed countries.

More people walking and catching public transport: not just critical transport goals that the ATP will deliver, but helping to build a more vibrant and healthy city for all those who live work and play there

19 Public health – challenge

Although some modes of transport have a negative overall effect on public health, others can have a positive effect. Physical activity can be encouraged through the provision, promotion, maintenance and upgrading of infrastructure related to walking and cycling. This is a strategic focus area in the ATP. Projects such as initiating workplace travel plans, neighbourhood accessibility plans (NAPs), and groups of schoolchildren supervised as ‘walking school buses’, are part of a package of plans to encourage physical activity.

Public transport can also play a part in encouraging physical activity. On average, a journey by public transport requires a 10-minute walk. A person who travels by bus twice a day is physically active for 20 minutes – two- thirds of the time needed for their health to benefit.

To reduce the number of injuries on the roads, projects in the ATP address lowering speed limits on selected roads, monitoring law enforcement, and the education of vehicle users and cyclists.

Other possible ways suggested in the ATP to solve transport-related health issues include:

g A supportive funding environment for encouraging behavioural changes towards using healthy forms of transport

g Encouraging piloting, and evaluating the use of high-occupancy vehicles, heavy commercial vehicle lanes, and high- occupancy toll lanes, as a means of optimising the use of the existing transport system

g Encouraging the rationalisation and pricing of parking throughout the region in accordance with the Regional Parking Strategy

Conclusions Along with the impacts and challenges identified above the rapid growth of Auckland’s population and its economy drives a strong increase in demand for travel, the national economic imperative for Auckland to have a competitive, world-class transport system with public transport at its centre, the difficulty and expense of extending roads in the future, and Auckland’s reliance on heavy trucks to move freight around Auckland and the country, all provide challenges that are addressed by the ATP.

The overall land transport challenges facing Auckland are to:

g Complete the work already under way, to deliver a properly connected strategic and arterial road network

g Manage the use of the road network as the primary mover of freight, road-based public transport, for commercially important trips and other trips that cannot be made by public transport

g Accelerate the uptake of public transport, cycling and walking

g Maintain and improve interregional road and rail connections

1.4 Policy framework A number of national, regional and local strategies and plans govern Auckland’s transport arrangements and improvements. They set out a broad range of objectives to which the ATP must contribute and they have been used to establish the implementation framework for the ATP (see Figure 5).

In addition to legislative requirements and programmes for Auckland, the main influences on the ATP are: New Zealand Transport Strategy (NZTS) Government Policy Statement (GPS) Auckland Regional Growth Strategy (RGS) Auckland Regional Policy Statement (RPS) Auckland Metro Project Action Plan Auckland One Plan Regional Land Transport Strategy (RLTS). Auckland Sustainability Framework (ASF)

20 FigureIntegrating XX. Achievement land use and of transport: the RLTS will see Auckland develop a transport systemWynyard where: Quarter now (left) and Artist’s Impression (right)

The Regional Land Transport Strategy (RLTS) is the policy document that leads the planning for Auckland’s transport system. The goal of the RLTS is a transport system that enhances the Auckland region as a great place to live, work and play.

The ATP shows the method by which ARTA will put RLTS policies into action. The ATP will provide ARTA with the framework for the development of the three-yearly Auckland Regional Land Transport Programme (RLTP), so ARTA can fulfil its legislative obligations. The RLTS has a ten-year time period set by statute, but its vision is to deliver a transport system that requires many years of development. The new RLTS will take a 30-year perspective and the NZTS vision for transport has been extended to 2040.

Figure 5. Hierarchy of plans

National Policy, Strategies and Legislation

Auckland Regional Growth Strategy (50 years)

Regional Policy Statement

KiwiRail Regional Land Transport Strategy (30 years) proposed Rail Network Development Plan (10 years) Auckland Transport Plan: (Long term (10-20-30 years) (as it relates to Multi-modal Integrated Implementation Plan) Auckland)

Regional Public Sustainable Regional Arterial Regional Road Transport Plan Transport Plan Road Plan Safety Plan

KiwiRail Long Term Council Community Plans Plan DART New Zealand Transport Agency proposals Transport Strategies/District Plans

Auckland Regional Land Transport Programme (tri-annual programme)

21 Work is well under way for electrification of Auckland’s rapid rail network

The Regional Transport Committee resolved (Oct 2007) “That preparation of the draft (2010) RLTS should build on the 2005 RLTS rather than be a zero-based approach to transport in Auckland” and (May 2009) that the strategic direction of the draft RLTS will be:

g Supporting and contributing to land use policy that supports a compact and contained urban form consisting of centres, corridors and rural settlements

g Continuing major investment in rail, bus and ferry infrastructure and service improvements

g Implementing behaviour change programmes

g Improving the operation of existing roads, especially regional arterials

g Constructing limited additional road capacity

g Reducing the impacts of transport on the natural environment and communities

The ATP takes a similar long-term view.

1.5 ATP priority areas Based on the priority outcome areas in the hierarchy of plans outlined, and specifically the targets in the GPS, 2005 RLTS and 1999 RGS and subsequent review progress under way (and continuing throughout 2009), the ATP has identified the following five strategic priority areas for focused attention (see Appendix 1):

g Greater focus on regional arterials

g Greater focus on safety engineering for streets and roads

g Optimising the use of the existing transport system to move people and goods

g Strong focus on transport investments that are supportive of the RGS and integrated transport and land use planning

g Completing the key elements of the strategic road, passenger transport, and walking and cycling networks

The ATP sets out:

g Key corridors, centres and hubs vital to the improved performance of the economy

g An indication of the broad priorities attached to the main elements of the strategy

g An assessment of key problems and opportunities for making improvements to Auckland transport services. For instance, reducing journey times for all road users by improving the network and its operation (especially movement of freight – exports – to key port hubs, both airport and sea ports)

g Guidance on funding options, and ways to help determine and give certainty to the arrangements for allocating resources for implementing the RLTS

22 The full prioritisation process is in Appendix 2. This process provides the framework for project/ package prioritisation in the tri-annual Regional Land Transport Programme. A return to a vibrant global economy is anticipated within the time of the ATP, as businesses take advantage of new communications technology and a more open market develops. Knowledge- based, manufacturing and agricultural products and tourism generate around $45 billion of exports and imports annually, carried through the air and seaports, on the region’s road network and, to a lesser extent, by rail. Auckland’s transport system needs to be a competitive, modern, integrated and largely automated freight network hub and distribution centre. There should be efficient and timely clearance of freight (and other business-related traffic) internationally, nationally, and to neighbour regions; integrated road, rail, ferry and coastal shipping; and dedicated, efficient corridors with increasing levels of automated control. At the same time, the ATP has to address environmental sustainability. It also has to consider the growing case for better access and mobility within the extended Auckland catchment – from Northland to Tauranga – around which the regional economy now operates, and which generates half the nation’s wealth and is home to half of all New Zealanders, as well as travel during holidays between metropolitan Auckland and destinations in Northland, Waikato, the Coromandel and the Bay of Plenty, which puts even more pressure on the road network New transport options are opening up as technologies and techniques previously considered uneconomic become viable (for example electronic tolling, tram-train technology, guided busways, Intelligent Transport Systems, and new fuel options). These opportunities must be identified and assessed.

1.6 Funding Although investment in transport has increased greatly over the past ten years, securing adequate funding will continue to be the most significant barrier to delivering the region’s vision. With projected expenditure outstripping available funds, Auckland must make trade-offs. Projects such as rail electrification and network extension, the proposed CBD rail tunnel, additional harbour crossing, and airport rail link represent major funding challenges, at a national as well as regional level. A global sum required to deliver the vision needs to be identified. The ATP provides the means for prioritising transport funding, ensuring best use is made of scarce funds and ensuring a return on investment through wider growth management, economic benefits and a contribution to national transport objectives. It provides a coordinated programme to address agreed and justified NZTA/GPS/ RLTS objectives and targets. By working in partnership with others to have a single, accountable transport- funding role, ARTA expects to make a difference.

23 2. IMPLEMENTATION PLAN 2009-2019

2.1 Long-term transport plan Regional arterials Development of the region’s arterial roads to give To meet RLTS and NZTS targets and GPS impacts, priority to moving people and goods, rather than a comprehensive transport plan for Auckland must trucks and cars will result in increased arterial road include a fully developed and completed passenger capacity for freight, passenger transport and general transport network, regional arterial improvements traffic movements as well as better integration with for increased capacity to carry goods and to surrounding and rapidly growing town centres and improve bus travel times and reliability, a strategic commercial areas. rail network for both freight and passengers, and a completed State highway network for the Auckland g Improvements to access for people and goods in the AMETI areas along with enhanced land use and region. Along with the individual components of the transport integration Long-term Transport Plan (see Map 1), it is critical g Improved bus priority and traffic management that all the elements are integrated across all modes improvements along the Ellerslie Panmure Highway and all agencies with transport responsibilities. g Whau River Crossing Passenger transport g Improving Lincoln Road to provide safer and more efficient freight, passenger transport and general Future development of the passenger transport traffic movement as well as an upgraded interchange network, primarily the Rapid Transit Network, is with State Highway 16 expected to be given effect via: g Providing for improved safety, freight and passenger transport movements along Albany Highway between g Electrification of the existing rail network (by 2013) Upper Harbour Highway and Wairau Road g An inner city underground passenger rail loop g Construction of Penlink connecting State Highway 1 connecting the Britomart Transport Centre and to the fast growing Whangaparaoa Peninsula and the North Auckland Line in the vicinity of Mt Eden relieving pressure on the Hibiscus Coast Highway station g Improving the Mill Road corridor serving the Takanini g A Waitemata Harbour Crossing rail tunnel growth area and providing an alternative route to g Rapid transit connections between Avondale and the Southern Motorway between Papakura and East Southdown, the Auckland CBD and the Auckland Tamaki Airport, and Manukau City Centre and Auckland Airport Rail network g Rapid transit connections between Orewa and Future freight transport infrastructure needs to give Albany; between Albany, Westgate and Henderson, effect to the Auckland Regional Freight Strategy (RFS) and between Panmure, Botany Downs and Manukau City Centre 2006 and could also include:

g Additional ferry terminals and services to provide g An upgraded rail link with Northland (Marsden additional capacity for connectivity by sea line) and related freight infrastructure including the establishment of a number of inland ports for servicing sea ports in Auckland and neighbouring regions

g Upgrading and optimisation of rail signalling

g Avondale – Southdown freight and passenger link

g Onehunga line extended to Onehunga Port

g Third freight line Westfield – Papakura

g Inland ports with intermodal transfers, e.g. Waimauku Northern inland ports

g Grade separation of road/rail intersections (55 region wide, seven high priority)

24 MAP 1 Long-term Orewa Transport Plan �

Four-laning SH1 Puhoi to North Warkworth

Extension of Northern Busway to Orewa

Penlink

Waimauku Northern Inland Port Albany

Albany Highway Waimaukau Rapid transit between Henderson - Westgate - Constellation - Albany

Hobsonville - Beach Haven - Auckland CBD ferry service

Additional Waitemata Harbour Road and Rail Westgate crossing

CBD Henderson CBD Rail Link Lincoln Road Newmarket

SH20 Waterview Ellerslie - Panmure Highway Rapid transit between Panmure - Botany Downs - Manukau City Centre Whau River crossing New Lynn

Avondale - Southdown passenger and freight rail line

Onehunga rail line extended to Onehunga Port New East - West strategic connection

Mill Road corridor Manukau Auckland CBD - Auckland Airport - Manukau City Third rail freight line Rail Link between Westfield - Papakura

MAP 1. KEY

LEGEND Papakura Existing rail

MAPRegional 1. KEY arterial

Future regional arterial

Strategic route State Highway 22

Future strategic route

Rapid transit

Future rapid transit

Electrification of rail network

Pukekohe

25 State highways Particular points to note include: Over the medium and longer term, the strategic g The consolidated expenditure pattern over the next ten years needs to be broadly in line with the roading network is expected to be given effect proportions identified in the RLTS through a range of projects, including: g The ATP identifies a significant gap between g Completion of the existing motorway network proposed expenditure and available funds, especially including the Western Ring Route for public transport, local roads, and walking and cycling g A new east-west strategic route between SH1 at Mt Wellington and SH20 at Onehunga g To some extent, the funding challenge is a result of the different funding ‘rules’ that apply to g An additional Waitemata Harbour Crossing road different land transport activities, especially those tunnel that require a ‘local share’ component g Upgrading SH22 between Drury and Pukekohe The prioritisation of projects must be flexible to g Providing for four-laning of State Highway 1 from anticipate and take into account ‘must do’ projects Puhoi to Warkworth required for positioning Auckland to meet international g In the Waikato region completion of the SH1 challenges and opportunities, such as hosting the Waikato Expressway and upgrades to the SH2 connection to the Hauraki Plains, including a new Rugby World Cup in 2011 and a Cricket World Cup in Kopu Bridge linking the Thames and Coromandel 2015. Peninsula As a result of funding challenges, the ATP has Walking and cycling (Map 3) taken steps towards improving the prioritisation of Walking and cycling make important contributions to expenditure for new activities to reflect the general travel in the Auckland region. RLTS priorities of: g Land use changes around town centres which g Making best use of the existing transport system provide for people to live, work, study and socialise with less need for long distance travel g Managing travel demand

g Completion of the regional cycle network g Increasing the capacity of the transport network

g Completion of regional and local walking networks The ATP prioritisation process will affect the future Travel behaviour change assessment of projects. In particular, the ATP process focuses on tackling congestion in those parts of the Important changes to attitudes, behaviours, and network that cater to commercial traffic. social norms will be achieved by:

g Ongoing expansion of walking school bus and school travel plan programmes

g A comprehensive approach to workplace and tertiary travel plans which increase walking, cycling, public transport and car pooling to work and study

g Neighbourhood accessibility plans which promote local amenities and encourage local trips

g Pricing tools to influence travel behaviour 2.2 Areas for action

The 2005 RLTS provided for a shift in the proportion of funds allocated to activities to manage public transport and travel demand, with an allocation of 62% of the available funding to roads, 34% to public transport and 4% to demand management. The split indicates how the ATP should prioritise the expenditure programmes of ARTA, the NZTA, KiwiRail and local authorities

26 Because the 2007 ATP developed from expenditure required to be consistent with the GPS in developing plans of various organisations, it has not yet had a the Regional Land Transport Programme. strong influence on the choice of projects for the The GPS covers the financial period 2009/10- region. While this ATP is also influenced by existing 2014/15 and provides indicative figures for 2015- expenditure plans, there is greater consideration of 2019 and will be in effect from 1 July 2009 to 1 July those projects and programmes that have not been 2012. ’submitted‘ through the RLTP but that will contribute to achieving the region’s transport outcomes. The Government’s stated priority is for land transport investment to support national economic growth and Government Policy Statement productivity. Of particular importance to this priority The Government Policy Statement (GPS) details for the Government are: the Government’s desired outcomes and funding g Investing in the State highway network, as a key to priorities for the use of the National Land Transport the efficient movement of freight and people Fund (NLTF) to support land transport activities. g Generating better value for money from the While the New Zealand Transport Agency (NZTA) Government’s investment across all land transport activity classes and enhancing the economic is required to give effect to the GPS in developing efficiency of individual projects the National Land Transport Programme, ARTA is

27 The specific impacts the Government expects to be achieved through the use of the NLTF are:

Short to medium-term impacts that contribute to economic growth and productivity

Improvements in the provision of infrastructure and services that enhance transport efficiency and lower the cost of transportation through

g Improvements in journey time reliability

g Easing of severe congestion

g More efficient supply chains

g Better use of existing transport capacity

g Better access to markets, employment and areas that contribute to economic growth

g A secure and resilient transport network

Other short to medium-term impacts

g Reductions in deaths and serious injuries as a result of road crashes

g More transportation choices, particularly for those with limited access to a car where appropriate

g Reductions in adverse environmental effects from land transport

g Contributions to positive health outcomes

The GPS also indicates that while the Government supports the overall intent of the New Zealand Transport Strategy of 2008 (NZTS), developed by the previous Government, it considers that moving too quickly on the aspirational targets for modal shift will have a negative impact on environmental and economic efficiency. The Government will develop a forward plan for transport with the first three years of the current GPS.

The GPS lists seven roads of national significance, which the Government considers New Zealand’s most essential routes; requiring significant development to reduce congestion, improve safety and support economic growth. The GPS requires that these roads are given priority when NZTA develops the National Land Transport Programme. The seven roads of national significance are:

g Puhoi to Wellsford – State Highway 1

g Completion of the Auckland Western Ring Route – State Highways 20/16/18

g Auckland Victoria Park bottleneck – State Highway 1

g Waikato Expressway – State Highway 1

g Tauranga Eastern corridor – State Highway 2

g Wellington Northern Corridor (Levin to Wellington) – State Highway 1

g Christchurch motorway projects

28 The GPS also provides guidance on transport Development of the strategic roading planning and evaluation. Key aspects of this guidance network that ARTA’s planning and evaluation processes must The 2009 GPS provides more certainty for take account of: elements of the strategic roading network than g The Government’s priority for land transport identified in the earlier ATP. As highlighted above, investment to support national economic growth and productivity growth – including the the GPS provides significantly increased funding roads of national significance for the completion of key elements of the State g The impact of volatile fuel prices by providing highway network, and funding has been identified transport choices such as public transport to progress elements of the Auckland Manukau g Achieving value for money by prioritising projects Eastern Transport Initiative to deliver increased which not only make the greatest contribution passenger transport, demand management and to the Government’s priorities, but which also give projects with higher benefit/cost ratios economic development opportunities for the south- higher priority. Projects with a benefit/cost east metropolitan Auckland areas. However, there is ratio of less than 2 will require more scrutiny. The GPS also requires NZTA to consider no clairty on the future nature of the strategic east- broader benefits and costs of proposed investments west connection between SH20 and SH1, a key not captured in traditional benefits/cost analysis rung in the NZTA ‘ladder concept’ of State highways methods. An example would be the economic agglomeration benefits of the CBD tunnel in Auckland. g The need for integrated planning to ensure that Development of the rapid transit transport and land use is connected. This includes identifying and protecting future transport network corridors While the GPS provides more certainty for the Given the benefits of increasing public transport use strategic roading network, there is less certainty for to economic growth and productivity, developing and the development of the Rapid Transit Network. delivering on the region’s public transport objectives Patronage growth on the Rapid Transit Network will be consistent with the outcomes being sought (Northern Busway and passenger rail) delivers from the GPS. a significant benefit to the performance of the

2 9 Auckland economy by removing car trips that of employment and residential activity in growth would have otherwise been made on congested centres will create demand for further travel that can motorways and arterials, complementing investment be only partially served by public transport. in the motorway and regional arterial network Unless the local road system in these areas is by freeing capacity for freight and other trips improved, the result is likely to be more congestion, that cannot be made by public transport. As which may stifle future growth. The accessibility of shown in Figure 6, the Rapid Transport Network ‘brownfield’ locations that have been earmarked for has the biggest impact on reducing congestion. redevelopment is also problematic. For example, The investment that the Government will make brownfield areas such as Auckland City’s ‘industrial in purchasing and operating electric trains for edge’ are located in increasingly congested parts Auckland can only be fully realised if there is of the network, and there are concerns over the sufficient funding for public transport services. ability of current transport proposals to resolve However, there is still uncertainty about planning, these problems, despite it being a key RGS area for delivery and funding of key components of the economic revitalisation. Rapid Transit Network, such as: Freight and commercial travel g Rail electification – The 2009 Government connections Budget has identified almost $670m for the renewal, upgrade and electrification of the Identification of a strategic freight network linking Auckland metropolitan rail network, however the $500m required for new electric rolling stock key manufacturing/distribution hubs of the region is has not been allocated as a decision has not yet urgently needed. The initial work for this is set out been taken that the funding will be approved. in the Auckland Regional Freight Strategy (2006) but g CBD rail tunnel – While work is progressing on awaits implementation. the identification of the route for the CBD rail tunnel, there is no current allocations for the The transport requirements of the distribution sector protection, nor subsequent construction of need attention. It is increasingly located in the south the tunnel of the region, and needs good access to bulk rail g Rail to the airport – There is strong regional support for the identification and protection of the rapid freight and inland port opportunities, the airport, and transit routes from the CBD to Auckland Airport, to the strategic State highway/arterial road network however budgets have not been allocated for to enable distribution back into Auckland, and to this work to be undertaken. growth areas further south, especially Bay of Plenty Accessibility in growth areas and Waikato. Areas containing key economic activity are currently congested. Further growth carries the risk of greater congestion. For example, the planned concentration

Figure 6. Annual decongestion benefit of each additional user of the RTN, QTN, and LCN networks

$25,000

$15,000

$15,000 N busway and rail

$10,000 Key bus and ferry routes $5,000 Local bus Decongestion benefits ($ p.a.) and ferry routes 0 Rapid Transit Network Quality Transit Network Local Connector Network

30 Greater attention to arterial roads Completion of Auckland’s regional As highlighted by ATSAP, arterial roads will require walking and cycling networks greater attention in future, as they can be expected Considerable progress has been made on to carry more traffic as a result of: the Auckland regional cycle network, with the g Traffic management approaches to remove short development of both on- and off-road cycle trips from the motorway network paths. There are still a number of key sections g Increased bus priority on the Quality Transit to be completed over the lifetime of the ATP. Network Investigations into the provision of walking and g More intensive land use development at centres and cycling opportunities over the Auckland Harbour along major arterial corridors bridge have identified a number of options. The ATP The management of arterial roads should be closely supports in principle walking and cycling across the integrated with the management of State highways, Auckland Harbour Bridge, however the project has the development of public transport and planning for not been submitted for funding through the Regional land use. Land Transport Programme, and when and if it is, it must be prioritised against other regionally important Achieving network integration will be a challenge. walking and cycling projects. However, there is scope for addressing this matter in the implementation phases of the Auckland governance reform currently under development.

2.3 Ten-year plan

Table 2. New and improved roads

2009 – 2012 2012 – 2015 2015 – 2019

New and improved infrastructure for local roads 961,034,984 537,692,268 489,022,207

Key Projects g New Lynn local road improvements to integrate g Construction of Penlink to Whangaparaoa the surrounding network with the passenger Peninsula transport interchange and underground of New g Manuroa Road-Rail overbridge and approaches Lynn rail station to grade separate road and rail to g Mill Road route protection accommodate town centre redevelopment and increased train services g Designation for AMETI multi-modal corridor g Upgrading of Albany Highway

2009 – 2012 2012 – 2015 2015 – 2019

New and improved infrastructure for State highways 1,462,218,549 900,000,000 900,000,000

Key Projects g Victoria Park Tunnel – capacity improvements to Greenlane and the upgrade of Newmarket the Northern Motorway between Auckland Viaduct by replacing it with a new structure. Harbour Bridge and Wellington Street as part Newmarket Viaduct is part of State Highway of the Central Motorway Improvements. This 1, a strategic route for the region. Structural project is key to maximising the benefits of standards and capacity in this section of State the improvements already made to the Central Highway 1 need to be improved to coordinate Motorway Junction with other developments on the network, such as Central Motorway Junction improvements g Newmarket Viaduct Improvements are part of a and the Grafton Gully motorway upgrade series of ongoing improvements to reduce congestion through Auckland’s Central g Waterview Connection – The Waterview Motorway. The project is being undertaken to Connection project will connect SH20 at reduce southbound congestion on the Southern Maioro Street in Mt Roskill to the Northwestern Motorway and will be achieved through the Motorway SH16 at Waterview by Great North construction of a fourth southbound lane on Road the motorway between Gillies Avenue and

31 MAP 2 Construction � projects 2009-12

Penlink SH1/Warkworth intersection improvements

East Coast Road upgrade Albany

Albany Highway upgrade Taharoto Wairau corridor

Glenfield Lake Road Hobsonville Road widening deviation

Birkenhead Wharf Westgate Central Connector Hobsonville Ferry Terminal

CBD Newmarket Newmarket Viaduct

Te Atatu Road development Dominion Road passenger transport

New Lynn New Lynn TOD road projects

Manukau Harbour crossing

Flat Bush walking, cycling and road upgrading projects

Manukau SH20-1 Manukau extention

MAP 2. KEY Porchester Road construction

LEGEND Papakura Construction projects

Regional arterial

Strategic route REGIONAL PROJECTS

- Integrated ticketing - Travel planning - Regional cycle networks - Passenger transport services

Pukekohe

3226 Table 3. Transport planning

2009 – 2012 2012 – 2015 2015 – 2019

Transport planning 45,567,487 28,441,060 39,648,511

Key Projects the reallocation of space on the Auckland Harbour Bridge for both walking and cycling g Route designation for the CBD rail tunnel to across the Waitemata Harbour support future growth of the CBD and region, and optimise capacity of the existing rail g Port access studies and other investigations to network improve the movement of freight internationally and intra- and inter-regionally by the New g Crash reduction planning by the New Zealand Zealand Transport Agency, Auckland Regional Transport Agency and territorial authorities Council, ARTA and territorial authorities g Corridor designation for the additional g Route identification and protection for Waitemata Harbour Crossing will additional capacity on State Highway 1 improve accessibility for all modes between Puhoi and Warkworth across the Waitemata Harbour. While tunnels are proposed for the new road and rail g Route identification and protection for connections, these new routes will allow for rail to Auckland Airport

Table 4. Walking and cycling

2009 – 2012 2012 – 2015 2015 – 2019

Walking and cycling 190,136,309 193,500,345 180,441,790

Key Projects g Designing and constructing a cycle connection between SH1 and SH16 in the Central Isthmus g Providing walk and and cycle facilities on local roads affected by the SH20 – SH1 motorway g Constructing a walk and cycle connection connection between Pioneer St and Westwave in Henderson g Improving walk and cycle access to Northern Busway stations g Construction of 38km of off-road walk and cycle paths in Flat Bush g Designing and constructing a cycle lane adjacent to SH1 between Northcote Road and g Upgrading the Northwestern cycleway and Constellation Drive extending into Grafton

33 Table 5. Public transport, demand management and rail

2009 – 2012 2012 – 2015 2015 – 2019

Public transport infrastructure 510,804,370 138,655,310 57,380,720

Key Projects

g Implementing integrated public transport fares including bus priority measures and cycle and providing an electronic smartcard ticket for facilities use on all public transport modes g Completion of the Central Connector g Provision of new ferry terminal at Hobsonville between Newmarket and Britomart

g Land purchase and construction of the g Construction of a park and ride facility at Dominion Road Passenger Transport corridor, Silverdale

2009 – 2012 2012 – 2015 2015 – 2019

Public transport services 721,644,641 949,285,964 1,254,234,095

Key Projects

g Improved connectivity into rail stations plus g Provision of a new ferry service to Hobsonville further development of high-quality, high- frequency services g Increasing train services towards 10 minutes peak and 15 minutes off peak, with extended g Bus service improvements on Isthmus, operating hours Waitakere, NW Rodney, Manukau and Papakura

2009 – 2012 2012 – 2015 2015 – 2019

Demand management and community programmes 43,222,059 49,774,856 60,553,533

Key Projects

g Continued school and work travel planning by fewer fatal and serious crashes by 2012 ARTA and the TAs to achieve the target of 9% reduction in car trips to school and a reduction g Trialling new and innovative tools and in car trips to participating workplaces by 2016 techniques such as personalised journey planning, carpooling and area wide travel g Community road safety projects such as child planning to increase travel choices restraint clinics, drink driving and driver speed education will contribute to achieving 400 or

2009 – 2012 2012 – 2015 2015 – 2019

Rail projects 700,000,000 450,000,000 45,000,000

Key projects

g Electrification of the Auckland rail network g Constructing new rail stations and transport interchanges at Newmarket, New Lynn and g Wiri Station Inland Port Manukau

g Completion of Western line double tracking g Onehunga Branch Line

2009 – 2012 2012 – 2015 2015 – 2019

Local roads renewal and maintenance 677,721,051 797,787,099 1,195,050,158 Highways renewal and maintenance 297,102,714 330,000,000 550,000,000

Ongoing programmes of maintaining the region’s local road and State highway network up to an acceptable standard. Maintenance includes roads, bridges and drain maintenance. Ongoing programmes of renewal of local roads and State highways, which includes re-metalling unsealed roads, resurfacing sealed roads, replacing drainage and traffic signals and reconstructing damaged road structures.

34 MAP 3 Auckland Regional Cycle Network �

MAP 3. KEY

LEGEND

Town centres and growth areas

Planned and construction (2009 - 2012)

Completed regional cycle networks Proposed regional cycle networks Major roads

35 3. BALANCING FUNDING & EXPENDITURE

Auckland must make trade-offs where funding seriously consider how Auckland maximises the constraints pose a major limitation on the region’s benefits of its accumulated public assets for the ability to meet national targets and objectives. The long-term benefit of the region and country. A pool of ATP provides the means for prioritising transport regional funds for transport that can be allocated by funding in the region, ensuring that the best use is the region to the areas of greatest need and benefit made of scarce funds. However, without the ability would be a major step forward for Auckland. to re-allocate funding between transport activities to However, experience has also shown there is no reflect the region’s priorities the ATP’s effectiveness single solution to lifting Auckland’s transport funding is limited to prioritising within activity classes. constraints. By working in partnership with others The ATP also provides the opportunity to look to demonstrate the value of investing in Auckland’s for ways of addressing the funding situation. transport future, ARTA will continue to make a Other organisations’ funding policies are not difference. the responsibility of ARTA. However, ARTA’s prioritisation role can allow ARTA to assist other 3.1 Funding requirements organisations with suggestions of how unfunded Almost $15 billion is required over the ten year programmes, or programmes that miss out under period of the ATP to fund the activities put forward the ARTA prioritisation process, might still be able to to address the challenges of the Auckland transport be funded. system. Of the $14.76 billion for planned expenditure This could be through better use of existing funding required (see Table 6) approximately $9.3 billion is tools, looking for new funding streams, asking required from the National Land Transport Programme how different governance arrangements might to fund State highways ($4.5b) and the Government’s ease existing constraints or by simply providing share of the local programme ($4.8b). Local the rationale for more investment in transport authorities have identified approximately $5.7 billion in Auckland from existing agencies. It is time to for their share of the transport programme, which

Figure 7. Indicative expenditure by category

6000 2015 – 2019 5000 2012 – 2014 2009 – 2011 4000

3000 (millions $)

2000

1000

0 New and Public Local New & Rail State highways Passenger Walking and Travel Demand Transport Improved Transport Renewal and Improved Infrastructure Renewals and Transport Cycling Management Planning State Services Maintenance Local Roads Maintenance Infrastructure Highways Project categories

36 Table 6. Indicative expenditure 2008/09 to 2018/19 ($m)

2009 – 2011 2012 – 2014 2015 – 2019

New and improved State Highways 1,476.0 900.0 900.0 Public Transport Services 721.6 949.3 1,254.2 Local Road Renewal and Maintenance 677.7 797.8 1,195.1 New and Improved Local Roads 961.0 537.7 489.0 Rail Infrastructure 700.0 450.0 45.0 State Highway Renewals & Maintenance 297.1 330.0 550.0 Passenger Transport Infrastructure 510.8 138.7 57.4 Walking and Cycling 190.1 193.5 180.4 Demand Management 43.2 49.8 60.6 Transport Planning 45.6 28.4 39.6

TOTALS: 5,609.5 4,375.1 4,771.3

GRAND TOTAL: 14,755.9

includes $1.08 billlion of unsubsidised works. Rail Based on current estimates of funding availability infrastructure comes to approximately $1.2 billion and expenditure, the ATP envisages that the required over the ten-year period, however in excess of transport expenditure for Auckland between 2008/09 $500 million of this is currently unfunded, primarily and 2018/19 will total approximately $14.76 billion. the investment required for new rolling stock for At this stage it is possible that planned expenditure the electrification of the Auckland Metropolitan Rail will be fully funded, even though not all the potential Network. funding has been identified at this stage. The 2009 Government Policy Statement has However, there are a number of important factors indicated the funding streams available from the that are masking the true amount of funding required National Land Transport Programme, however these and the potential gap between planned expenditure have not been regionalised, therefore an assumption and funding. For example, it appears that funding has been made with respect to the funding available availability is driving project lists. Projects may have to meet Auckland’s transport needs.

37 been delayed, deferred or scaled back to meet are not being included in long-term plans. If the financial constraints without consideration of availability of funding drives project lists, the region the effect this may have on the region’s ability will fail to meet desired targets and objectives – we to meet national targets and objectives. While it have moved from a funding gap to an outcome gap. is essential that investments are tailored to the Trends in fuel sales also have implications for the current economic climate, it does result in delays National Land Transport Fund. The Land Transport to important projects and the subsequent delays Management Act now requires that all income from in achieving the economic benefits and growth fuel excise taxes be used for land transport purposes. that would accrue to the region as a result of In the short term, this means an increase in transport undertaking and completing the project sooner. funding. However, it also creates a tight link between fuel sales and income for the National Land Transport 3.2 Funding pressures Fund. Variability in fuel sales creates uncertainty for One role of the ATP is to deal with the potential gap future income projections, and constrains central between available funds and the cost of delivering government’s ability to fund transport projects. Auckland’s transport needs. In this context, the task of prioritising transport In one way, a gap between available funds and projects becomes both more important and more planned expenditure is a healthy position to be in. It complex. If the future brings low fuel sales, either allows the region to choose the best projects from because of high prices or for wider economic those that could be implemented. However, it is reasons, then this does not only mean less funding. It not a good outcome for the region when continued also means that a different mix of transport projects is underinvestment leads to a backlog of desirable needed. and beneficial projects, with the consequent The ATP recognises this by allocating higher priority delay leading to the loss of economic, social and to strategic investments such as rail electrification, environmental benefits. which will enable people to travel without being In the past, a major issue for Auckland has been so reliant on fossil fuels. However, this is only a that a major funding gap has prevented delivery of partial solution; trends in fuel sales and fuel excise identified projects. It now appears that a major issue duty income are a key reason ARTA is advocating is that, where funding is unavailable, some projects

Figure 8. Funding streams for land transport in Auckland

Treasury NZTA Local Share by ARC and TAs TAs: rates, tolls, developer contributions etc.

KiwiRail ARTA State Local Passenger TDM, Non Rail network Rail network highways roads transport walk, subsidised below track above track services (all local roads and rolling stock modes) and non cycle [Under Review] rail infrastructure

AUCKLAND RLTP

38 Figure 9. Predicted performance of the road networks in 2016

100% Busway 90% State highways Regional arterials 80% Local roads 70%

60%

50%

40%

30%

20%

10%

0% Length PT Demand Vehicle Commercial Social Cost Funding (lane kms) (AM peak pax Utilisation Vehicle Trips of Crashes (10 years) kms) (AM peak vkt) (2006)

greater flexibility in funding rules, in order to achieve modes. A critically important effect of this for ARTA is the best transport outcomes for the region within that it limits the ability to reallocate funds to different available funding. modes and can lead to a situation where certain types of projects are more easily funded than others. 3.3 Funding allocation For example, the majority of recent transport Whilst the amount of funding for transport has investment has been directed towards State highways increased considerably over recent years, a real issue and rail. An issue facing Auckland is that investment in continuing to face Auckland is the means by which arterial roads has fallen behind State highways, partly funding is raised and allocated. due to the difference in funding rules, with councils Transport funding in Auckland is complex because finding it difficult to raise adequate local share. of the many agencies responsible and the different This is a real issue. Although State highways are mandates applying to these agencies (see Figure 8): funded differently to regional arterials they have g State highways are funded 100% through the complementary roles in the transport network. The National Land Transport Programme (NLTP) performance of the State highway network is severely g Local roads are funded from local sources (rates, impacted by congestion on arterial roads, particularly development contributions) and the NLTP in peak hours when key parts of the network are at or g KiwiRail is funded directly by Treasury near capacity. g ARTA’s rail infrastructure responsibilities are currently Securing sufficient funding to keep pace with vital funded by Auckland Regional Council, however this is under review arterial roading is also important for Auckland, as regional arterials form a vital part of the passenger g Passenger transport services are funded from regional rates and the NLTP transport network. Currently, 44% of all peak period road-based public transport travel is on arterial roads, g Councils, ARC and the NLTP fund ferry wharves with only around 28% on State highways and 29% on The current fragmented governance and funding local roads (see Figure 9). arrangements create a number of difficulties around One way to deal with this situation of funding the effects of different funding sources, different challenges is to consider changing the Financial funding criteria and a lack of integration between

39 Assistance Rate (FAR) by introducing different FARs Prioritisation in the ATP is based on a set of principles for different categories of local roading projects. that reflects these requirements and retain consistency For example, regional arterial roads could receive a with the guidelines developed for the Regional Land higher (e.g. 75 %) financial contribution from NZTA to Transport Programme, assessing seriousness, urgency help redress the funding imbalance between strategic effectiveness, efficiency and strategic balance. arterial roads and State highways in Auckland and to Prioritisation is also reflective of the five strategic reflect the greater importance of regional arterials to priority areas identified in the ATP, and endorsed by the economic development. This is a matter that needs Regional Transport Committee for focused attention: to be advanced with both the Ministry of Transport g Greater focus on regional arterials and NZTA. g Greater focus on safety engineering for streets and The use of development contributions is another roads issue for projects that require local funding. Currently, g Optimising the use of the existing transport system to only capital growth-related projects are eligible to move people and goods be funded by development contributions, and only g Strong focus on transport investments that are city and district councils can levy development supportive of the RGS and integrated transport and contributions. The ARC cannot levy development land use planning contributions, even where it is providing for the g Completing the key elements of the strategic roading, effects of growth. Similarly, central government passenger transport, and walking and cycling networks projects that provide for growth can be funded only from Government sources. Major funding priorities This has the potential to lead to inconsistencies. For Accordingly, the infrastructure improvements identified example, while councils could be asked to recoup by the 2009 ATP, unite and actively take forward the some of the economic benefits from projects via strategies, plans, projects and packages that have development contributions, no similar mechanism been developed by a range of transport sector provider exists for State highways, even though the groups and organisations – ARTA, the NZTA, KiwiRail Government’s tax revenue is automatically indexed to and local authorities. economic activity. The ATP programme aims to get the most out of the Issues of affordability arise as a consequence. whole transport network to ensure people and freight Councils may be able to fund passenger transport in Auckland have access to an affordable, integrated, infrastructure but there might not be sufficient safe, responsive and sustainable transport system. funding for services. Alternatively, using development However, current funding arrangements dictate that contributions (which usually form part of the local prioritisation must be undertaken on a modal basis as share) to reduce the total cost of a project (effectively follows: sharing with NZTA) reduces the amount of local g Rail network improvements (KiwiRail) funding available for councils, making it harder to fund the local share of a project’s costs, which is g State highways already a significant issue in Auckland. g Local roads 3.4 Funding priorities g Passenger transport g Sustainable transport Criteria for prioritising funding While ARTA accepts that funding is currently ARTA is required to make a statement about its view allocated on this basis, the ATP prioritisation of the land transport priorities in the Auckland region, process does seek to prioritise the region’s including the priorities of other organisations. transport expenditure across the silos towards In doing this, ARTA must be satisfied that its priorities achieving a position where funding can be will contribute towards its objectives, as well as the reallocated across modes or activity classes based objectives and targets of the NZTS and GPS. on merit.

40 3.5 Funding and financing 3.6 Summary options Based on current (indicative) estimates of planned One way to mitigate funding constraints is to use expenditure and available funding, a significant alternative sources of funding. These could include transport funding gap exists in Auckland. Three major additional revenue streams from road users, such projects – the CBD rail tunnel, rail to the airport, and as tolls on individual parts of the roading network, or the additional Waitamata Harbour Crossing are not possibly some form of pricing across larger parts of the included within current funding plans. network. Furthermore, whilst financial prudence is important, As well as additional revenue streams, there is the council expenditure constraints have led to a option to use financing tools to spread project costs significant reduction in local projects to make budgets over time. Public Private Partnerships (PPPs) are a balance. Councils have moved projects they cannot way of financing infrastructure investments and are fund to beyond the ten-year funding horizon, masking worthwhile where it can be clearly demonstrated that a potential funding gap. We have effectively moved they offer better value for money than alternatives. from a funding gap to an outcome gap. At the same time, the competitive tensions that are The concern for ARTA is that funding is not adequate brought about through the PPP procurement process to deliver the full ten-year programme, and that the encourage the public sector to match or exceed any programme itself may be too little and too late to make time and cost savings that could be offered by a private acceptable progress towards Auckland’s and the sector competitor. Government’s objectives and targets. ‘Land use value capture’ is another way to inject funds A second major concern for ARTA is the fragmented into infrastructure investment, using a method that and siloed approach to funding. More flexibility is captures the increase in land values around fixed- needed to allow the redistribution of funds between route public transport systems, which may benefit both activity classes. One way that ARTA supports for transport sponsors and contributing developers. The addressing these funding inconsistencies is to move process secures an assured level of private funding, towards a pool of regional transport funds that can be thereby reducing the impact on the public purse and allocated consistently. making the project more affordable. There are also other options related to making better use of Auckland’s accumulated public assets for the benefit of the region. It is time to look at pooling Auckland’s income-earning assets so the revenue generated can be invested in the future of the region, including transport. There may be other financing opportunities in the use of financial instruments such as infrastructure bonds or other forms of term debt. ARTA is realistic about the current economic climate, and the pressures on spending faced by councils and the Government. ARTA’s strategy is not simply about looking for more money from the Government to close the funding gap or to bring forward critical projects that have been deferred past the ten-year horizon due to lack of funds. All agencies need to work together to demonstrate the value of investing in Auckland’s transport system and achieving the region’s vision. ARTA will continue to advocate that Auckland be given more responsibility and become more accountable for raising the additional funds necessary to achieve our vision.

41 4. ATP PROGRESS

Forecast, Land Transport NZ’s National Land Transport Programme, ARTA and KiwiRail plans and programmes in order to create a consolidated 4.1 What Auckland needs transport plan indicating strategic focus areas, major packages, projects and indicative funding The planned transport system response to the requirements. challenges of growth and development in Auckland is laid out in the 2005 RLTS (with an interpretation The consolidated approach followed therefore did and areas for action in the inaugural 2007 ATP), not allow for the ATP giving significant guidance or and also the Ministry for Economic Development’s direction as to envisaged future planning for the Economic Transformation agenda and associated region even though the outcomes to be achieved from New Zealand Transport Strategy and Government the envisaged packages and projects were largely Policy Statement (2008). These documents provide consistent with the direction set by the RLTS. It is a ‘common strategic view’ that includes the within this framework that projects were prioritised following elements: and it is therefore also within this framework that the success of the 2007 ATP should be judged. g A substantial investment in public transport, with priority given to the development of a rapid transit network on dedicated corridors (mainly electrified Fund expenditure rail-based) connecting growth centres In the 2007 ATP it was estimated that approximately g Development of the strategic road network, $16.8 billion would be invested over the next including the completion of missing links in the ten years on identified transport services and planned motorway network, and an increasing focus on traffic management to improve the infrastructure, however the amount of funding integration and operational efficiency of existing available was estimated to be $13.7 billion with a regional arterial and State highway networks, particularly for freight services and other trips that further $900 million available for post 2016. It was cannot be made by passenger transport noted in the 2007 ATP that the resultant shortfall of g Increased emphasis on travel demand management, $3.1 billion could be financed by means of various and the promotion of walking and cycling measures such as a regional fuel tax, toll fees, road financing and public-private-partnerships. However, 4.2 Review of the 2007 ATP specific measures or a combination of measures The ATP transforms the RLTS policies and strategies are only now being implemented, such as tolling the into actions and an investment programme. Those Northen Gateway. The following table shows actual actions and investments have been selected and versus planned expenditure for the period 2006 to prioritised on the basis that they will contribute to date. the outcomes sought by the RLTS. In 2006/07, nearly $170.67 million less was Purpose of the 2007 ATP invested than planned on different activities and various reasons have been put forward for the The 2007 ATP relied on information from councils’ under spending. The reason for the difference for LTCCP, Transit New Zealand’s State Highway

Table 7. Planned versus actual expenditure 2006-2008 ($’000)

Activity Planned exp Actual exp Planned exp Actual exp Total Planned Total Exp Deviation 2006/07 2006/07 2007/08 2007/08 2006/08 2006/08 % Maintenance 258,853 244,389 273,159 247,053 532,012 491,442 -7.62 Traffic Management 26,181 25,686 29,316 27,890 55,497 53,576 -3.46 Safety 58,047 61,488 Included in road infrastructure from 2007/08. Road Infrastructure 417,361 323,044 535,349 498,425 1,010,757 882,957 -12.64 Passenger Transport 156,434 132,999 174,035 174,396 330,469 307,395 -6.98 Services Passenger Transport 284168 262,550 285678 49689, 569,846 312,239 -45.21 Infrastructure Traffic Demand 31,973 12,194 49,307 23,850 81,280 36,044 -55.65 Management TOTAL 1,233,017 1,062,350 1,346,844 1,021,303 2,579,861 2,083,653

Note: 1. The figures above include NZTA (previously Transit NZ) expenditure for State highways 2. KiwiRail expenditure was only available for the 2006/07 years. The 2007/08 expenditure has been estimated

42 the planned versus actual safety expenditure Indications from the data available for the 2007/08 may be found in the manner in which the road year also suggest under-performance of planned and PT infrastructure figures were calculated. versus actual expenditure. The reasons for such One of the common benefits cited in most road under-spending may be similar to those already and PT infrastructure projects is improved safety, mentioned but could in fact be more likely attributed and to allocate the total project costs to road/ to the deliberate changes of financial priorities due rail infrastructure would therefore be incorrect. A to political changes in local council governance manual correction was made to the cost allocation structures. for such projects and a percentage of the total costs were allocated to safety, for example, in the 4.3 Achieving strategic focus case of rail an amount of $215,630 were allocated and planning responses to safety – this amount could have been equally The consolidated approach followed in the 2007 ATP allocated to PT infrastructure improvements which allowed for the proposed major transport packages to would have made the difference between planned be divided into regional and sub-regional packages and actual expenditure on passenger transport with the sub-regions being identified as Rural, North, infrastructure $55,000. West, Isthmus and South. Strategic focus areas were then developed for each sub-region with planned The areas which did not perform as planned were responses developed for each strategic focus area. road infrastructure ($94.3 million), passenger Only projects exceeding $10 million were included in transport services ($23.4 million) and transport the table, however, this does not reflect or indicate demand management ($19.8 million). that other projects are less important, as it was done The main reasons advanced for the under-spending primarily for the purpose of brevity. Progress to date includes: with regards to implementing the major packages and g A lack of skilled people and resources to design, planned responses for each key area is as follows: evaluate and implement programmes g Unforeseen delays due to consent-related requirement.

Table 8. Regional transport packages

Package Agency Comments Western KiwiRail/ Completed from Swanson to New Lynn. Grafton to Avondale Line Duplication ARTA currently in progress Newmarket station upgrade KiwiRail/ Project scheduled completion Nov 09. Funding to be confirmed ARTA Rail station improvements ARTA Improvements are ongoing at various rail stations Manukau rail link KiwiRail/ Funding to be approved. Construction to start 09/10 ARTA/MCC Other rail infrastructure KiwiRail/ Construction started at Papakura and Pukekohe. Funding for next ARTA phase to be finalised Rail rolling stock: interim ARTA Sets 15-17 delivered. Sets 18-23 being refurbished for delivery 2010 Rail rolling stock: long term ARTA Process underway. KiwiRail to acquire EMUs Rail electrification KiwiRail/ Process underway. KiwiRail to manage projects ARTA Integrated ticketing ARTA Process underway. Expected completion 2011/12 Real time information ARTA Installing type 2 real time equipment on bus network Investigating real time requirements for rail network New ferry infrastructure ARTA Bayswater design underway. Funding to be confirmed Northern Busway NZTA/NSCC/ Phase 2 in progress ARTA Onehunga branch line KiwiRail/ Project to start from 09/10. Funding to be approved ARTA New Lynn underground KiwiRail/ Progress to start from 09/10 WCC/ARTA Design completed

43 Table 9. North: Strategic focus and outcomes

Strategic focus Planned response Action taken Dealing with cross-harbour commuter Increased bus services utilising Northern Northern Busway stage 1 completed – demand Busway and improved ferry services stage 2 in progress Develop ferry plans – Resource consents obtained for Bayswater and Beachhaven Design finalised and put out to tender Additional Waitemata Harbour Crossing Route protection underway Provide more efficient passenger transport Bus priority measures and intersection Bus transit lanes complete at Forrest Hill improvements on the Quality Transit Network Road-Tristram Ave and Akoranga Drive and key arterial corridors connecting the Bus transit lanes underway at Tristram busway Avenue-Wairau Road and Lake Road to Sylvan Road Installation of bus priority measures at Albany Civic Crescent due to start Design stage near completion for bus transit lane Constellation Drive-Forrest Hill Road Ongoing road and intersection improvements at Taharoto-Wairau corridor Bus transit lane extension of existing Onewa Road bus transit lane in progress Facilitating economic development at existing Roading and other developments to improve Access to Silverdale North under and emerging economic hubs access to Albany, Wairau Valley and Silverdale construction North Construction in progress on the Wairau- Taharoto corridor Massey Link Road – preliminary design stage underway Improving access to Whangaparaoa Peninsula Penlink and associated improvements Orewa township upgrade in progress Penlink – awaiting funding decision Providing transport to newly developed Long Bay and Greenhithe transport Long Bay – investigation and design residential areas developments to support growth areas including to start pending Environment Court roading and passenger transport improvements outcomes as development occurs SH18 Greenhithe complete Supporting development at key growth Walk, cycle and passenger transport Installation of Lake Road and centres improvements in key centres (Takapuna, Albany Shakespeare Road cycle lanes complete and Orewa) Construction of Forrest Hill Road cycle lane near completion Constellation Drive bus station complete Design for upgrade of Takapuna bus station complete Design stage for upgrade of bus stops in Highbury and Browns Bay town centres underway Design stage for Glenfield suburban bus station underway Improving access between North Shore Complete Greenhithe and Constellation sections SH18 Greenhithe complete and Waitakere and alternative north-south of Western Ring Route (WRR) SH18 Hobsonville under way corridors to SH1 via Western Ring Route

44 Table 10. West: Strategic focus and outcomes

Strategic focus Planned response Action taken and stage of completion Dealing with uneven commuter flow Increased rail and bus services Increase in train service frequency to Henderson New Lynn TOD project under construction Strategic bus priority study completed District Plan changes progressed to make available employment land at Massey North and Hobsonville Providing more efficient passenger transport Rail upgrade, including Western Line double Western Line double tracking program and increasing the capacity of the strategic tracking and electrification to improve rail in progress rail corridor system frequency and reliability Completed station upgrade at Fruitvale, Bus priority measures, intersection Glen Eden and Sunnyvale stations improvements and improved service levels on Station upgrade in progress at Sturges, the Quality Transit Network Ranui and Swanson. Park and Ride completed at Sunnyvale Bus priority measures planned for New Lynn and Lincoln Road Swanson Park and Ride under construction Improving the safety and efficiency of SH16 Capacity improvements and bus priority lanes Bus priority lanes on SH16-study on the NW motorway completed Bus priority lanes being planned on Lincoln Road Safety improvements completed on SH16 beyond Westgate Contract was awarded for SH16 extension to be designed and constructed Supporting development at key growth Walk, cycle and passenger transport Walk-cycle ways at Twin Streams and centres improvements in key centres (Westgate, along Henderson Creek completed. Henderson and New Lynn) Walkways upgraded in Henderson town centre Walking and cycling facilities as per WCC strategy at design phase. Bus interchange at Henderson completed Planning of major public transport interchanges at New Lynn and Westgate in progress Facilitating economic development at Roading and other developments to improve Funding approved for Upper Harbour emerging economic hubs access to Westgate Highway improvements linking North Shore to Westgate Planning of transport access to Westgate at Massey North and along Hobsonville Road Increasing person-carrying capacity at major Bus priority measures and intersection Planning of bus priority, walking and arterials improvements on key arterial corridors, cycle improvements at Lincoln and Te especially Quality Transit Network routes Atatu Roads in progress Providing transport to newly developing Hobsonville transport developments Clearwater Cove ferry-Park and Ride residential areas completed Planning being done for passenger transport facilities at Hobsonville Improving access between Waitakere and Complete Hobsonville deviation section of SH16 Hobsonville construction North Shore and alternative north-south Western Ring Road (WRR) underway corridor to SH1 via Western Ring Route (WRR) Ensuring that the development and Enhance access between SH20 and New Lynn SH20 Waterview preferred option management of the motorway network is via Tiverton-Wolverton-Clark corridor identified integrated with arterial road improvements Tiverton-Wolverton corridor development deferred Planning in progress for Clark Street upgrade SH16 upgrade being planned in conjunction with the planned upgrades of Te Atatu and Lincoln Roads

45 Table 11. Isthmus: Strategic focus and outcomes

Strategic focus Planned response Action taken and stage of completion Providing an alternative north-south corridor Complete Mt Roskill extension, Manukau Mt Roskill extension open to SH1 via Western Ring Route Harbour Crossing and Waterview extension of Manukau Harbour Crossing under SH20 construction. SH20 Waterview preferred option identified Improving access to the eastern suburbs and Progress the Auckland Manukau Eastern AMETI in investigation (stage 2), Manukau City Transport Initiative (AMETI) notification of requirements and AEE stage Provide more efficient passenger transport Rail upgrade, including Western Line Service improvements to both rail and double tracking and electrification, and bus bus services infrastructure and service improvements to Airport bus service initiated enhance system frequency and reliability Enhance access and travel options to the Complete the Central Connector, complete Construction of Central Connector in Central Business District rail upgrade, improve rail and bus frequencies, progress and undertake planning to protect the CBD rail CBD rail loop route protection walks loop corridor underway Additional Waitemata Harbour crossing protection under way Support development at key growth centres Walk, cycle and passenger transport Cycling and walking construction at improvements in key centres Ellerslie, Sylvia Park, Waikaraka and Onehunga Area walking and cycling strategy implemented as per capex budget Facilitating economic development at Roading improvements focused on Industrial Ellerslie-Panmure corridor at study emerging economic hubs Edge, including Manukau Crossing, Neilson phase street and AMETI Tiverton-Wolverton upgrade deferred Neilson street upgrade deferred Manukau Harbour Crossing under construction Increasing the person-carrying capacity at Bus priority measures and intersection Bus priority measures initiated and/ major arterials and enhancing bus travel time improvements on Quality Transit Network or implemented at Mt Eden, Remuera, and reliability routes, and development of the Dominion Tamaki and Quay Street Road priority lane Rail upgrade and station upgrade in progress Intersection improvements completed at Greenlane, Great North and Great South Road Dominion Road bus priority lanes at study phase Providing transport to newly developing Mt Wellington Quarry transport developments, Mt Wellington developments in study residential areas including provision of passenger transport and consultation phase services Ongoing upgrading of existing bus and rail transport services Improving the efficiency of SH1 at Central Complete Central Motorway Improvements, Central Motorway Improvements Motorway Junction and filling missing links in including Victoria Park Tunnel and Newmarket underway. CMJ complete, Newmarket the strategic network Viaduct projects Viaduct upgrade under construction, Victoria Park Tunnel project under contract Ensuring the development and management Enhance access between SH20 and New Tiverton-Wolverton upgrade deferred of the motorway network’s integrated with Lynn via Tiverton-Wolverton-Clark corridor, SH20 Waterview preferred option arterial road improvements and progress improvement to Neilson St to identified connect SH20 and SH1 Linking SH20 to East Tamaki at investigation stage. Neilson Street upgrade deferred and linked to the outcomes of SH20 to East Tamaki project Enhance access between Auckland CBD Complete SH20 Mt Roskill extension and Mt Roskill extension open and Auckland Airport Manukau Harbour Crossing projects. Manukau Harbour Crossing projects Complete Dominion Road passenger transport under way improvements Dominion Road transport passenger improvements underway and short-term measures in planning Ensure that the transport system is able to Complete SH20 Mt Roskill extension and Eden Park upgrade under way with respond to the needs of the Rugby World Manukau Harbour Crossing projects. Improve transport improvements to fit in with Cup 2011 passenger transport access to and from Eden project Park and rest of the region Continuous monitoring of passenger service levels in region to improve access and affordability 46 Table 12. South: Strategic focus and outcomes

Strategic focus Planned response Action taken and stage of completion Providing an alternative north-south corridor to Complete SH20 Manukau extension, Manukau SH20 Manukau extension under SH1 via Western Ring Route Harbour Crossing and Mangere-Puhinui construction capacity improvements Mangere-Puhinui capacity improvements in progress Manukau Harbour Crossing under construction Improving access between Manukau City and Progress AMETI AMETI in investigation (stage 2), the eastern suburbs of Auckland notification of requirements and AEE stage Providing more efficient passenger transport Rail upgrade including the Manukau rail link and Manukau rail link and associated bus service improvements to improve system interchanges at planning stage. Funding frequency and reliability to be finalised Bus service frequency and reliability investigated and to be continuously monitored to ensure improved service levels Ferry terminal at Half Moon Bay and Park and Ride facilities awaiting funding availability Enhancing access and travel options to Complete the Manukau rail link, SH20 Manukau Manukau rail link and associated Manukau City Centre extension and local road improvements to interchanges at planning stage. Funding remove through traffic from Manukau City to be finalised Upgrading of roads surrounding Manukau City Centre transport interchange in order to improve access and travel options Supporting development at key growth Walk, cycle and passenger transport Major ongoing development and centres improvements in key centres including bus infrastructure construction at Flat Bush, services to the airport including 38km walk and cycle paths Facilitating economic development at Roading improvements focussed on East Waiouru Peninsula access completed emerging economic hubs Tamaki, Waiouru Peninsula and the airport Improving access to East Tamaki being investgated Increasing the person-carrying capacity of Bus priority measures and intersection Major construction at Great South major arterials and enhancing bus travel time improvements on Quality Transit Network routes Cavendish-Te Irirangi Roads completed and reliability Study underway to determine best implementation of bus priority measures Providing transport to newly developed Flat Bush, Takanini and Hingaia Peninsula Major ongoing development and residential areas transport developments including passenger construction at Flat Bush transport services Taking steps to provide for alternatives to SH1 Route protection and initial; development of Mill Study under way for north-south travel in the southern sector Road corridor Ensuring that the development and Undertake local road improvements to Study under way to determine how to management of the motorway network is complement SH20 Manukau extension integrate proposed development with integrated with arterial road improvements regional arterial road network

Table 13. Rural: Strategic focus and outcomes

Strategic focus Planned response Action taken and stage of completion Improving the safety and efficiency of SH1 Complete ALPURT B2 ALPURT B2 – complete and SH2 with improved linkages to Northland, Schedeways Hill Investigation for four laning Puhuo to Waikato and Bay of Plenty SH1 Passing lanes Wellsford underway SH2 improvements at Maramaru Schedeways Hill – investigation to start SH1 – passing lanes at Warkworth, Kumeu, Mangawhai and Toovey – investigation dates yet to be determined SH2 improvements at Maramaru under investigation Facilitating economic development at Roading and other developments to improve SH1/Warkworth intersection emerging economic hubs access to Warkworth improvements in design stage Improving the safety and efficiency of rural Improvements to Whitford-Maraetai corridor Whitford-Maraetai corridor at various arterial routes with growth pressures Improvements to Clevedon Arterial routes stages of design and construction Improvements to Pukekohe east access Clevedon interchange under construction Pukekohe East – land purchase and construction is in progress Improving the safety of other strategic routes SH16 safety improvements and passing lanes Brigham Creek extension under construction Kumeu passing lanes to be investigated 47 4.4 Performance of the It is within this framework that the current transport transport system to network’s performance is evaluated. The strategic achieving outcomes indicators used, as well as their use, relevance and measurability are given in Appendix 3. Expected outcomes from the RLTS are articulated in Chapter 9 of the 2005 RLTS. Chapter 10 explains 4.5 RLTS funding allocation the indicators adopted to measure the outcomes. The achievement of RLTS outcomes is dependent Three types of indicators are used: on adequate funding and implementation work g Headline programmes. A summary of progress over the past g Strategic year in the key areas of roading, public transport g Contextual and transport demand management highlighted is as Headline indicators are used to assess the follows. performance of the transport system in broad terms; Assessment against the 2005 RLTS strategic indicators are appropriate and relevant funding categories indicators that assess how well each objective is The Land Transport Programmes from 2006/07, achieved; and contextual indicators are used to 2007/08, 2008/09 and the current Regional Land measure the possible impact of variables that are Transport Programme (RLTP) have been assessed currently outside the influence of the strategy on the against the RLTP funding targets. The overall result stated outcomes. of the assessmnet are shown in Figure 10. Continuous measurement of the performance of the In order to provide a complete picture of transport transport network over time must be carried out, funding in relation to the RLTS funding categories, and trend lines established to determine whether the estimated cost of each activity was analysed expected outcomes have been met. The ATP from the information provided by the submissions primarily uses strategic and contextual indicators. from approved organisations, as well as information Headline indicators can be derived from strategic from KiwiRail and then apportioned appropriately to indicators. one or more of the RLTS funding categories. The 2007 ATP did not mention any means of This analysis is based on submissions for funding in measuring outputs because key performance the final RLTP. The final analysis will include the ten- indicators (KPIs) were being developed. KPIs have year expenditure plan, as opposed to the three-year since been developed, but as this is the first time RLTP figures. The RLTS targets are shown in Table they are used, changes are to be expected. At 14 and Figure 11 for comparison. present comparisons will be based primarily on Note: It is important to consider that proportions of a programme assumptions, and time should be allowed for trends are being presented, therefore direct comparisons on the trend can to be established. Once trend lines have been not be made, for example the total 2006-09 funding requested was established, the current performance of the transport $4.1 billion whereas 2009-12 funding requested is $5.3 billion.

system can be related to the 2016 outcomes Public transport Infrastructure includes $396 million of expenditure specified by the 2005 RLTS. on electric trains, ownership of the these trains has yet to be finalised.

Table 14. 2005 RLTS funding allocation

TRAVEL DEMAND MANAGEMENT 4% PUBLIC TRANSPORT: 34% Infrastructure 18% Services 16% ROADS: 62% Infrastructure 30% Safety measures 4% Traffic management 2% Maintanence and renewals 26%

48 Figure 10. LTP assessment for the three-year period 2006/07-2008/09 and the RLTP 2009/10-2011/12

40.0 RLTS 10 year % targets 35.0 2006-2009 (LTPs) 2009-2012 (RLTP)

30% 30.0

26% 25.0

20.0 18% 16% 15.0

10.0 % planned three year expenditure 5.0 4% 4% 2% 0% Road Traffic Safety Road PT Service PT TDM Maintenance Management Infrastructure Infrastructure Comparison between LTP (2006-2009) and RLTP (2009-2012 in RLTS Activities

The following general trends can be seen from the g There has been an increase in the funding being requested on road infrastructure (as a proportion analysis: and in absolute real terms) in the RLTP compared g The expenditure on Road Maintenance (and to previous LTPs. A general fall in local roading renewals) continues to increase year on year, this is expenditure is being masked by Penlink, which is an likely to be due to an increase in the level of service expensive single project, and by a very large increase that is by sought by road controlling authorities and in State highway expenditure. This is likely to be requested by the public. However, the proportion of due to territorial authorities wishing to keep rates funding applied for by road controlling authorities increases to acceptable levels and the Government in the RLTS is still less than the percentage set wishing to accelerate the construction of roads of out in the 2005 RLTS and a slight decrease as a national significance proportion of total spend than 2006-2009 period. g Public Transport Services funding in the RLTP is This may indicate that the funding proposed in the greater than previous LTPs, in absolute terms and RLTS for maintenance was over-estimated as a percentage, however it is still less than the g The proportion of funding requested in the RLTP for proportion of transport funding required to be spent Traffic Management is slightly less than the on PT services in the 2005 RLTS. This suggests that proportion of funding requested in the past LTPs funding on services needs to be increased further if and below the 2% target figure in the 2005 RLTS. In the full decongestion benefits of PT are to be realised absolute terms, funding is increasing by $5 million, g Expenditure on Public Transport Infrastructure which in a $4.9 billion programme is not significant. remains at a similar proportion as that in the previous Good traffic management is essential to ensure LTPs, but a greater level than was indicated in the that the existing road network can be used to its 2005 RLTS. A large proportion of this expenditure is full potential. Under-funding in this area may lead being incurred by KiwiRail. The full extent to the cost to unnecessary congestion and a poorly performing twin tracking the Western Line was not known at the network time of the completion of the RLTS, consequently it g In the RLTP there has been a significant drop in the is likely that the proportion of funding required for proportion of funding requested (as a proportion PT infrastructure was under-estimated in the RLTS. and in real terms) for the implementation of safety In addition, $396 million has been included for the projects. As many projects offer a variety of purchase of electric trains benefits, the majority of the funding for safety is g The proportion of funding proposed to be spent from projects whose main purpose is not reducing on TDM has increased over previous LTPs, however, safety risks. However, the RLTS target is derived remains below the RLTS percentage target. It from the need to carry out safety specific projects. appears that the funding requested on TDM has been This suggests that there is a need to increase increased by a large NZTA State highways programme safety projects, especially if the impacts that the on walking and cycling schemes and this has masked Government wishes to achieve in the GPS are to be to some degree a large cutback in funding requests met from the local authorities

49 Figure 11. Total RLTP compared to RLTS targets

40.0 KiwiRail

35.0 NZTA 34.7% Local 30% Authority + 30.0 ARTA

26% RLTS Targets 25.0 21.7% 20.0% 20.0 18%

16% 15.0 15.5% % Total expenditure % Total 10.0

4% 5.0 3.2% 4% 3.2% 1.8% 2% 0% Maintenance Traffic Safety Road PT Services PT TDM Management Infrastructure Infrastructure Planned expenditure in 1st RLTP (2009-2012) compared to RLTS targets

In roading, noticeable progress has been made on RLTS, but which has contributed significantly to the State highway programme under the six-year higher use of public transport. If these trends are not funding programme guaranteed by the Crown in offset by the economic downturn, this is expected to 2006. However, progress on the development of have an effect on a number of the outcomes listed local roads, and in passenger transport enhancement above, in that the demand for improved passenger and development, has been more constrained transport services is outstripping the ability of the by the funding shortfall and by organisational programme to meet its targets ahead of the timeline considerations. While progress on freight route provided for in the strategy. improvements has benefited from the State highway Progress in a number of other key result areas programme, achievement of RLTS targets requires continues to depend on willing cooperation among linking these initiatives with planned improvement to the many stakeholders, including the introduction key arterial routes; an area that has not progressed of integrated ticketing, and improved bus and ferry as rapidly as the State highway programme. services. Overall, achieving most RLTS outcomes depends on the development of passenger transport. Outcomes of freely flowing traffic, good access and mobility and improved public health are closely related to developing a significantly upgraded passenger transport network that is well used. Progress has been made to secure funding for electrification of the existing rail network by 2013. Meanwhile, upgraded rail services have resulted in significantly increased passenger transport patronage over the last 12 months, accelerated by a period of rapidly rising fuel prices, not predicted in the 2005

50 APPENDIX

APPENDIX 1: Regional Strategic Focus Areas The Regional Strategic Focus Areas identified in the 2009 ATP are based on the impacts identified in the 2009 Government Policy Statement (GPS) and the results expected in the RLTS (2005), and reflect both the national desired impacts as well as those outcomes that are of special interest to the region as a whole. The RLTS is currently being reviewed, however the Regional Transport Committee (RTC) has resolved that the review is building on the 2005 RLTS, rather than a zero-based approach. The RTC has also adopted a position paper which sets out the strategic direction of the draft 2010 RLTS as: g Supporting and contributing to land use policy that supports a compact and contained urban form consisting of centres, corridors and rural settlements g Continue major investment in rail, bus and ferry infrastructure and service improvements g Implement behaviour change programmes g Improve the operation of existing roads, especially regional arterials g Construct limited additional road capacity g Reduce the impacts of transport on the natural environment and communities

The five regional strategic focus areas consistent with the GPS impacts, 2005 RLTS and the strategic direction identified for the draft 2010 RLTS consist of: 1 Greater focus on the regional arterials

Linking national routes to local routes is important to ensure a high level of connectivity and thus access to markets as well as to alleviate congestion and improve the reliability of journey times. Economic and population growth in the region will lead to increases in freight and vehicle movements, thus a greater planning focus is required on the region’s arterial roads, as defined in the Regional Arterial Road Plan (RARP) and the desired impacts of the GPS (2009) and the RLTS (2005). Importantly, improvements to the arterial network will also alleviate congestion, improve journey times, support achievement of the region’s strategic passenger transport plan and, by providing for the right traffic in the right corridor, ensure that the regional arterials will be supportive of providing for the active modes.

Achievement of the expected increase in bus passenger boardings for example, is forecasted to come from the QTN, which is located primarily on the regional arterials, which in turn will contribute to the desired impact targets to improve travel times on regional critical routes.

Contribution to:

GPS (2009) impacts Improvements in the provision of infrastructure and services that enhance transport efficiency and lower the cost of transportation through: Improvements in journey time reliability Easing of severe congestion More efficient freight supply chains Better use of existing transport capacity Better access to markets, employment and areas that contribute to economic growth A secure and resilient transport network More transport choices, particularly for those with limited access to a car where appropriate RLTS (2005) expected results Substantial progress is expected in the planning and completion of key links in the strategic road network Interpeak travel speeds on the region’s roads for freight and general traffic are expected to decrease by only 5.6% in spite of traffic volumes between key business centres increasing by 45% The transport system is expected to significantly improve access opportunities through improvements to all aspects of passenger transport journeys including the quality of the interchange environment, functionality and frequency and quality of service Increase walking and cycling and other active modes

5 1 2. Greater focus on safety engineering for streets and roads The Regional Road Safety Plan highlights the need for specific road safety engineering. While all transport projects must consider and include safety, there is a need to increase the number of road safety engineering projects on urban and rural arterials to keep track with the RLTS (2005) targets and to deliver the regional crash reduction for 2010. It is critical that road safety engineering solutions include positive urban design elements, bearing in mind that positive urban design outcomes for streets and corridors will contribute to improving safety for all users. Addressing road safety engineering, along with education and enforcement, will not only contribute to the GPS impact associated with decreased fatalities and hospitalisations but also increase use of the transport environment by vulnerable users such as pedestrians and cyclists.

Contribution to:

GPS (2009) impacts Reductions in deaths and serious injuries as a result of road crashes RLTS (2005) expected results Crashes, deaths and injuries, especially to pedestrians and cyclists, to decrease Promote the use of alternative transport modes (walking and cycling)

3. Optimise the use of the existing transport system to move people and freight The current and planned transport system in the Auckland region is a significant asset with a value in excess of $15 billion and it is critical that the use of the system is optimised. Shifting the emphasis from the movement of automobiles to the movement of people and freight will contribute to achieving the expected results at both national and regional level. Initiating methods that allocate road space to preferential traffic will not only ensure improvements in system efficiency but also in easing severe congestion. This can be assisted by moving non essential trips from cars to passenger transport as far as possible, which will free road space for commercial and freight movements, thus reducing congestion and improving travel times and reliability on critical routes.

Contribution to:

GPS (2009) impacts Improvements in the provision of infrastructure and services that enhance transport efficiency and lower the cost of transportation through: Improvements in journey time reliability Easing of severe congestion More efficient freight supply chains Better use of existing transport capacity Better access to markets, employment and areas that contribute to economic growth A secure and resilient transport network More transport choices, particularly for those with limited access to a car where appropriate RLTS (2005) expected results Interpeak travel speeds for freight and general traffic are expected to decrease by only 5.6% in spite of traffic volumes between key business centres increasing by 45% Travel speeds for freight and general traffic to be less variable than in 2005 Improve the reliability of public transport services Improve the use of alternative transport modes (walking and cycling)

4. Strong focus on transport investments that are supportive of Regional Growth Strategy It will be critical for transport investments to be supportive of and integrated with the Regional Growth Strategy and land use planning if a number of the GPS (2009) and RLTS (2005) outcomes are to be achieved. The GPS (2009) mentions specific focus to be given to improving transport in areas having growth and improving access to markets while the RLTS (2005) focuses on integrating transport with land use that shows growth potential. Although national emphasis seems to focus on economic growth, regional focus is aimed at both economic and population growth.

5. Completion of key links in the region’s strategic roading, passenger transport and cycling networks To maximise the full benefits from the transport system it is critical that complete networks are available for use, such as the State highway, rapid transit, and walking and cycling networks. It is critical that projects or packages

2452 Contribution to:

GPS (2009) impacts Improvements in the provision of infrastructure and services that enhance transport efficiency and lower the cost of transportation through: Improvements in journey time reliability Better access to markets, employment and areas that contribute to economic growth More transport choices, particularly for those with limited access to a car where appropriate Reductions in adverse environmental effects from land transport Contributions to positive health impacts

RLTS (2005) expected results People will have a greater choice of travel modes and it will be easier to change between modes Travel speeds for freight and general traffic to be less variable than in 2005 Interpeak travel speeds for freight and general traffic are expected to decrease by only 5.6% in spite of traffic volumes between key business centres increasing by 45% Move commuter trips wherever possible to public transport On average 65,000 more households are expected to be within 30 minutes’ travel by car from employment opportunities; 37,000 more households within 30 minutes’ travel by public transport from employment opportunities by 2015 Improve the reliability of public transport 13% of the urban population should be living in the regional growth zones of projects that come forward to meet this focus area are fully justified against the GPS impacts and in terms of all their benefits and costs, rather than just ‘completing a network’. The strategic roading network should prioritise both routes of national and regional significance if the economic potential of the region and its immediate neighbours is to be realised. The draft GPS (2009) has identified seven routes of national significance of which four are of importance to Auckland namely: g State Highway 1 from Puhoi to Wellsford (linking Auckland to Northland) g Western Ring Route (Waterview connection is seen as the highest priority to complete) g Victoria Park Tunnel (to overcome severe congestion on SH1) g Waikato Expressway (enables improved linkages between Auckland and its major regional trading partners Waikato and the Bay of Plenty). The completion of the Rapid Transit Network (RTN) and the regional cycle network will allow users more choice, as well improve the effectiveness of implementing both travel supply and demand management. The completion of the RTN is essential for the delivery of fast and efficient passenger transport services.

Contribution to:

GPS (2009) impacts Improvements in the provision of infrastructure and services that enhance transport efficiency and lower the cost of transportation through: Improvements in journey time reliability Easing of severe congestion More efficient freight supply chains Better use of existing transport capacity Better access to markets, employment and areas that contribute to economic growth A secure and resilient transport network More transport choices, particularly for those with limited access to a car where appropriate Reductions in adverse environmental effects from land transport Contributions to positive health impacts Making better use of existing capacity in the transport system RLTS (2005) expected results Interpeak travel speeds for freight and general traffic are expected to decrease by only 5.6% in spite of traffic volumes between key business centres increasing by 45% Substantial progress is expected in the planning and completion of key links in the strategic road network Travel speeds for freight and general traffic on motorways and major arterials to be less variable than in 2005 On average 65,000 more households are expected to be within 30 minutes’ travel by car from employment opportunities; 37,000 more households within 30 minutes’ travel by public transport from employment opportunities by 2015 Rapid transit services linking regional growth centres on the RTN will not be more than 10 minutes apart at morning peak People have a greater choice of travel modes and it will be easier to change between different modes

5 3 APPENDIX 2: The ATP prioritisation process General ARTA has developed a methodology, based on the Prioritisation Process and Assessment Criteria of the ATP for assessing profiles based on the relationship between the Regional Strategic Focus areas and the objectives of the RLTS (2005). All activities being submitted for NZTA subsidy through ARTA need to be profiled in order to determine the activity’s priority and allocate available funding accordingly. The profiling process An activity’s profile consists of giving a High, Medium, or Low rating to each of the following three factors: Seriousness – (of the issue being addressed) – Seriousness refers to the scale and importance of the transport problem to which the project/activity or package responds. Effectiveness – (of the proposed solution) – refers to the extent to which the solution (the package or project/activity) contributes to addressing the issue being addressed and the broad policy objectives set out in the RLTS (2005) and ARTA’s statutory objectives; and Efficiency – (of the proposed solution) – the efficiency of an activity is based on its benefit/cost ratio. In calculating the BCR, sensitivity analysis of the key BCR drivers should be undertaken, and consideration given to including all benefits and costs such as agglomeration impacts, enhanced land use outcomes and positive urban design outcomes. The economic efficiency of an activity does not necessarily have to be based on the BCR even though it almost always is the case for roading improvement schemes. Because the factors named above are given equal weighting, the outcomes can result in activity profiles with the same seriousness rating. In such cases the urgency of a project will be considered in order to further rank the priority of projects with the same seriousness rating. Urgency – allows for the incorporation of any external factors that influence the timing of implementation. The last part of profiling considers the activity’s contribution to the strategic balance of the Auckland Transport Plan. This factor allows a structured judgement to be applied to ensure that the overall shape of the Auckland Transport Plan is acceptable, recognises the modal shares and outcomes indicated in the RLTS (2005), and takes account of broader considerations (including the impacts desired by the GPS (2009)) that might influence the priority and timing of regional projects and packages.

The prioritisation principles

Seriousness: the scale and importance of the transport problem to which the project/activity or package responds

Strategic Challenges Prioritisation principles Focus Area SFA1, 2, 4 Encouraging and facilitating economic Priority to projects which support increased economic productivity, development including intensification of employment, economic clusters, and effective heavy goods vehicle access Improving accessibility to areas of intensified economic activity, including visitor concentrations Priority to projects which support regionally agreed areas of new business activity Priority will be given to those parts of the strategic and arterial network where limited alternative routes exist for accommodating growth Transport requirements to facilitate urban growth strategies, including lead infrastructure and services SFA 1, 2, 3 Minimising the impact of congestion and Highest priority will be given to addressing congestion which impacts unreliable travel times on freight and commercial traffic movements, and all-day congestion that constrains business and community development Priority will be given to reducing congestion that impacts on the safe and efficient operation of strategic corridors and the needs of inter- regional travel will receive a high priority Congestion that impacts travel to and from vital economic growth centres and markets will receive a high priority Priority will be given to reducing congestion which impacts on passenger transport and improving passenger transport travel times Other solutions to commuter peak travel congestion will be accorded a high priority where a viable sustainable transport alternative, or only a partial solution, is unavailable

54 Cont... seriousness: the scale and importance of the transport problem to which the project/activity or package responds

Strategic Challenges Prioritisation principles Focus Area SFA1, 2, 3, 4 Optimise use of the existing transport Priority will be given to strategies aimed at Traffic Demand system Management, traffic management, traffic light optimisation and road access control. SFA 4 Ensuring integrated land use and transport The Regional Growth Strategy (RGS) growth concept, will be a key provision to enhance regional growth determinant in deciding priorities for investment in transport, with particular emphasis on: Encouraging higher-density development and employment in growth nodes and corridors Investment in alternative and active modes to support higher-density development in towns and sub-regional centres Ensuring that land use patterns are consistent with the RPS and RGS An integrated transport system Priority will be given to projects that help to achieve a better balance between employment, education and residential locations, and to projects that reduce the need to travel SFA 5 Providing a transport system that is safe Provision of alternative/additional capacity required in the event of to use critical failures on the network will be given priority to ensure security of the transport network in the event of emergencies Areas with demonstrated safety problems (both current and potential) will be addressed first (i.e. accident black-spots, recognised unsafe sites, etc) Safety improvements for vulnerable users will be given a high priority Priority will be given to responding to perceived personal security risk issues where this is likely to restrict use of alternatives in favour of the private car Priority will be given to solutions which incorporate positive urban design outcomes SFA 2, 3, 4 Increasing travel choices and reducing Highest priority will be given to the needs of those travelling to reliance on private cars employment, education centres and vital social services Priority will be given to parts of the network with poor linkages and a lack of integration between modes Ensuring viable alternative transport choices to and within town centres will be a priority Priority will be accorded to the provision of transport choices in growing communities where existing transport choices are limited Priority will be accorded to providing transport mode choice in areas of high social deprivation and to the transport-disadvantaged Priority will be given to solutions which avoid or improve community severance SFA 3, 4 Promoting environmental sustainability Priority will be given to reducing dependence on non-renewable resources (including fuel, land, and aggregate) Reductions in fuel use and CO2 emissions will be prioritised Priority will be given to addressing transport-related water quality issues in sensitive catchments Priority will be given to addressing transport-related community dislocation in areas where this is significant SFA 3, 4 Promoting public health outcomes Priority will be given to addressing air emissions from vehicles in areas with high population exposure Priority will be given to addressing noise and vibration in areas with high residential exposure Priority will be given to those parts of the region where low participation in active modes is likely to result in health problems

Urgency: allowing the incorporation of any external factors that influence the timing of implementation Does the project have particular timing or interdependencies with other actions that make its implementation urgent, such as: The potential failure of critical infrastructure The potential foreclosing of significant future economic development or transport opportunities if action is not taken The need for completion in time for specific events of regional or national significance, particularly the Rugby World Cup The need for the project as a prerequisite for other high-priority activities (for example advance land purchase)

5 5 Effectiveness: the extent to which the solution (the package or project/activity) contributes to the issue being addressed and the broad policy objectives set out in the GPS, RLTS and ARTA’s statutory objectives Objective Assessment criteria

Economic development How effective is the project in reducing travel time variability for freight movement between key economic hubs? To what extent will the project encourage shorter journeys that deliver economic advantages? To what extent does the project have the potential to unlock private sector investment and development benefits? Integration of transport, How effective is the project in contributing to a transport network that integrates all modes? networks, services and land How effective is the project in increasing the choice of mode? use Impact on sustainability of How effective is the project in retaining benefits over time? transport network To what extent does the project have an impact on other parts of the transport network?

Contribution to the Regional To what extent does the project actively support the RPS and RGS growth concept, including centre Growth Strategy intensification and/or high-density corridors? Safety and personal security To what extent will the project reduce crashes? How effective is the project in improving the safety and personal security of vulnerable transport? Access and mobility To what extent will the project improve the transport choices available? How effective is the project in improving access to appropriate transport for vulnerable users, the transport-disadvantaged and their caregivers? To what extent does the project remove barriers to people’s ability to access opportunities for work, education, health and social services (especially the transport-disadvantaged)? Environmental sustainability To what extent will the project reduce reliance on non-renewable resources? To what extent will the project improve fuel efficiency? How effective is the project in reducing adverse water quality impacts? To what extent does the project avoid environmental damage and reduce the adverse impacts of transport on the natural and physical environment? To what extent does the project reduce community dislocation? Public health How effective is the project in increasing the use of active modes? How effective is the project in reducing harmful air emissions? How effective is the project in reducing traffic noise and vibration?

Efficiency (of the proposed solution) The efficiency of an activity is based on its benefit/cost ratio. In calculating the BCR, sensitivity analysis of the key BCR drivers should be undertaken, and consideration given to including all benefits and costs such as agglomeration impacts, enhanced land use outcomes and positive urban design outcomes. The economic efficiency of an activity does not necessarily have to be based on the BCR even though it almost always is the case for roading improvement schemes.

Strategic Balance: a factor that allows a structured judgement to be applied to ensure that the overall shape of the Auckland Transport Plan is acceptable, recognises the modal shares and outcomes indicated in the RLTS, and takes account of broader considerations (including national issues) that might influence the priority and timing of projects and packages The balance of projects and packages in the ATP will seek to enable: The achievement of the Government Policy Statement targets Achievement of the expected outcomes of the RLTS The general allocation of transport resources in accordance with the RLTS An overall plan that builds for the future Projects that contribute to an integrated solution, including the completion of a network The best use of existing transport assets Strong network resilience and reduced risk of network failure, with a particular focus on lifelines, civil emergencies and civil defence evacuation procedures Options to be kept open for the future, and not foreclosing on opportunities (including corridor protection and advance land purchase) Taking proactive actions early to influence future demand in a more sustainable way, or avoid future problems (for example early introduction of passenger transport to newly developing areas) Sufficient flexibility in the programme to enable other projects to be advanced when projects encounter implementation problems Fundability (i.e. local share, and the ability to gain funding from other sources) Affordability of the programme as a whole, recognising available resources, and contingency planning A reasonable balance between rural and urban requirements Community aspirations to be met through an equitable balance of transport resources, and opportunities between different communities and socio-economic groups Risks to be appropriately managed

56 APPENDIX 3: RLTS objectives and indicators

OBJECTIVE 1: ASSISTING ECONOMIC DEVELOPMENT

Outcome 1; Allowing people and goods to travel between key economic centres at reasonable speeds

KPI – Congestion indicator The congestion indicator is used to measure the impact of congestion on mobility. Outcomes are reflected in terms of the average speed, average travel time and variability in travel time of a specific route. These outcomes are then related to RLTS targets and objectives.

KPI – Passenger transport

Real time information with regard to the actual performance of public transport by bus has become available during the year, however, real time information with regard to rail and ferry services is not currently available. The reliability of public transport (measured in terms of variability of travel times) is indicated in the tables below for the AM peak on selected routes.

FigureTable i.iXX. Bus Achievement passenger of transport the RLTS reliability will see Aucklandfor selected develop routes a (Realtransport time) system where:

Route Average travel time Variability of travel time (Real time variability) % Min AM PM AM PM AM PM Albany – CBD 17:15 19:16 4.81 9.04 0:00 0:00 (via Northern Busway) Henderson – CBD 47:14 47:00 18.85 10.04 00:10 01:07 (via NW Motorway) New Lynn – CBD 33:24 42:54 15.29 9.78 00:06 00:02 Manukau – CBD 58:21 1:04:13 23.17 11.98 0:22 0:07 Botany Downs – CBD 37:11 1:06:30 14.94 11.42 0:01 00:12 Papakura – CBD 1:34:40 1:43:23 11.93 7.41 00:28 0:00:23

Notes: 0630-0900 for AM Peak 1600-1830 for PM peak. (March 2008). (inbound and outbound): the Northern Express for Albany, route 085 for Henderson, route 154 for New Lynn, route 680 for Botany, and 471 and 472 for Papakura and Manukau (along Great South Road).

KPI – Movement between key economic centres

Data regarding the Auckland region road network’s performance was acquired by means of the car survey done bi-annually by BECA for the ARC and NZTA (Beca; November 2007). The routes used for KPI purposes are those identified by ARTA (based on previous studies and reports) as being significant for freight. Although some overlapping occurred between these routes and those actually used in the car survey, the majority of the routes are such that additional calculations were necessary. The following routes are reported on:

5 7 Table ii.i Vehicle travel times between key economic centres Figure XX. Achievement of the RLTS will see Auckland develop a transport system where: Routes Survey Time Average Average ATT CGI VTT % Comments Month/ Length Speed (min) (min/ (min/trip) Year (km) (km/h) km)

North Comparisons are made between the same periods of each year. Albany to CBD 11/2007 AM 15.34 22 43 2:06 9 (3:52) A general improvement (Oteha Valley, Fanshaw, in travel times and a Quay) 4/2008 AM 15.34 20 46 2:20 10 (4:36) reduction of congestion. Further improvements are 11/2008 AM 15.34 23s 40s 1:55s 8 (3:20) s expected once ph. 2 of the Northern Busway is completed Albany to Newmarket 11/2007 AM 19.636 24 49 1:50 7 (3.26) Improvement in travel (Oteha Valley; Fanshaw; times and reduction in Beaumont; Wellington; 4/2008 AM 19.636 24 50 1.52 9 (4:30) congestion Market) 11/2008 AM 19.636 25s 48s 1:44s 6 (2:53) s Glenfield to Takapuna 11/2007 AM 3.50 32 7 0:40 10.1(0:43) A noticeable drop in (Glenfield, Wairau, average speed with an Taharoto, Anzac) 4/2008 AM 3.50 26 8 1.03 10.4 (0:50) improvement in variability of travel time. The trend 11/2008 AM 3.50 24t 9t 1:16t 9 (2:10) s over time is one of increasing congestion Sunset North-Rosedale- 11/2007 AM 13.73 48 17 0:23 6 (1:01) An improvement in all Waitakere (Westgate) aspects of travel time is (Constellation; Upper 4/2008 AM 13.179 51 16 0:19 8 (1:04) noticeable Harbour; Hobsonville) 11/2008 AM 13.179 62s 13s 0:05s 5 (0:39) s Routes West Henderson to CBD 11/2007 AM 16.884 31 33 1:22 12 (4:02) An improvement in all (North-Western aspects of travel time Motorway, SH1, Union) 4/2008 AM 16.884 23 44 2:00 11 (4:50) is noticeable. Variability of travel time remains a 11/2008 AM 16.884 37s 28s 1:02s 10 (2:48) s concern even though improvement are occurring New Lynn – Henderson 11/2007 AM 12.824 45 17 0:23 5 (0:49) A general deterioration in – Massey North all aspects of travel time is (Great North, Lincoln, 4/2008 AM 12.824 46 16 0:19 4 (0:41) noticeable Sh16) 11/2008 AM 12.824 37t 21t 0.37t 8 (1:41) New Lynn to CBD 11/2007 AM 9.246 20 28 2:15 15 (4:12) An improvement in all (Great North, New North, aspects of travel time is Union) 4/2008 AM 9.246 29 19 1:16 10 (1:54) noticeable 11/2008 AM 9.246 30s 18s 1:12s 9 (1:37) s Henderson to St Johns 11/2007 AM 23.538 29 49 1:08 5 (2:21) A general deterioration in (Great North Road, all aspects of travel time is Lukes Road, Balmoral 4/2008 AM 23.538 24 59 1:33 4 (2:22) noticeable Road, Greenlane, 11/2008 AM 23.538 26t 55t 1:23t 5 (2.45) t Rumuera, St Johns) Routes East Neilson to Pakuranga 11/2007 AM 8.150 37 13 0:38 15 (1:52) A general deterioration in (Neilson, Church, South all aspects of travel time is Eastern Highway, 4/2008 AM 8.150 43 11 0:26 17 (1:52) noticeable Pakuranga Motorway) 11/2008 AM 8.150 27t 18t 1:12t 17 (3:04) t Routes South Onehunga – Wiri 11/2007 AM 12.383 84 9 0:05 8 (0:45) A general deterioration in (SH20, Wiri station) all aspects of travel time is 4/2008 AM 12.383 72 10 0:13 8 (0:48) noticeable 11/2008 AM 12.383 68t 11t 0:15t 8 (0:53) t AIAL to CBD 11/2007 AM 20.810 54 23 0:24 4 (0:55) A general deterioration in (SH20A, Hugh Watt, all aspects of travel time is Pah, Manukau, SH1) 4/2008 AM 20.810 48 26 0:33 4 (1:01) noticeable 11/2008 AM 20.810 51t 24t 0:29t 5 (1:12) t POA – Wiri 11/2007 AM 22.916 39 35 0:37 5 (1:43) A marginal improvement can be seen in all aspects (Wiri Station, Lambie, 4/2008 AM 22.916 42 33 0:17 5 (1:39) relating to travel time Great South Road, 11/2008 AM 22.916 40s 34s 0:36s 5 (1:42) s Atkinson, Mt Wellington, Jellicoe, Pilkington, Apirana, Kohimarama, Kepa, Ngapipi, Tamaki)

Source: Adapted from ARC and NZTA Moving Car Survey Data (November 2007; March 2008; Novem ber 2008). Legend: s = Improvement in relation to previous period t = Decline in relation to previous period 58 Trends – North: The cgi trend for the routes North indicates increasing congestion, lower average travel speeds and longer average travel times. Variability of travel time on all the routes showed an increasing trend. This is to be expected as the routes tend to connect major growth centres, or be adjacent to, major industrial centres and/ or major motorways with high traffic volumes. The opening of the Hobsonville-Greenhithe section of the Western Ring Road brought marginal improvements in congestion and ATT, however, variability of travel time increased. This could be seen as an indication of a low level of resilience to impacts caused by short-term external variables. Trends – West: The cgi trend for the routes West contrasts markedly to those in the North and indicates decreasing congestion, higher average travel speeds and lower average travel times from the New Lynn hub. However, the routes to the CBD (and further) indicate a worsening of congestion with the decrease in VTT indicating that variability of travel times becoming ‘stable’ on these routes. Trends – South: The cgi trend for the routes South indicates in the main increasing congestion, lower average travel speeds and longer average travel times. On the route POA- Wiri all measurements indicate positive trends while the Neilson-Pakuranga route indicates increased VTT with higher speeds and lower travel times. This could indicate a low resilience level to any impacts on the speed/flow relationship on this route and should be investigated further.

Outcome 2; Attracting significant numbers of people to passenger transport and active modes

KPI – Passenger transport patronage by mode

Mode 2005/06 2006/07 2007/08 Growth (000) (000) (‘000) % change Rail 5 029 5 737 6 794 18.42 Bus1 42 175 41 999 43 248 2.97 Ferry 3 926 4 400 4 380 (0.45) TOTAL 51 130 52 136 54 422 4.38

Bus patronage includes commercial, contracted and school bus totals but excludes MoE and chartered school bus patronage (criteria for inclusion – bound by concessionary fares and open to use for any school children). Target: 3% per annum in order to reach 100 million boardings by 2015 Trend: Patronage growth has exceeded the expected growth rate for the past year which can be attributed mainly to the opening of the Northern Busway, increased rail patronage and escalating fuel prices. In the short term, the impacts stemming from the uncertainty in energy prices, the emissions trading act and regional fuel levies as well as low economic growth conditions are still to be felt by commuters but it is expected that their cumulative impact will contribute to increasing patronage in the foreseeable future.

KPI – Passenger transport patronage by kilometre

Passengers/km 2005/06 2006/07 2007/08 % Growth Rail 3.016 3.025 3.285 1.09 Bus 1.078 1.008 1.103 1.09 Ferry 4.80 4.10 3.90 (0.05)

Target: None Trend: Although the numbers of rail and bus patronage increased, the pax/km ratio did not show the same trend. This may be due to areas receiving services where commuter numbers do not make it economically viable in the short term, or services being rendered in newly built areas in order to stimulate demand. However, increasing km without a concomitant increase in passengers will eventually lead to uneconomic services and it is therefore prudent to set a target as to what constitutes the desired minimum passengers/km ratio when evaluating specific routes or services.

5 9 PT boardings per capita

PT boardings per capita % Growth 2005/06 39.7 - 2006/07 39.2 (1.26) 2007/08 39.2 0

Target: Suggested 63 boardings per capita be set as target in order to equal 100 million boardings by 2015 and assuming a 2% population growth. Trend: Boardings per capita is showing signs of having stabilised over the last two years after declining from 2005. The current level of boardings per capita will only achieve 61.5 million boardings p.a. given a 2% population growth. Boardings per capita therefore needs to be increased in order to achieve the set target.

Active modes

Active modes % Growth

2005/06 2006/07 2007/08 Walking - - - - Cycling NDA 17,807 19,401 1.09

Active modes Methods for measuring walking trips (or trip chains) in the Auckland region are in the process of being developed, using data obtained from census and various regional surveys. The methods must be able to produce results that can be used to compare actual regional outcomes to national and regional targets.

Cycling currently reflects the cycle movements monitored at 77 established monitoring points in the Auckland area which are then converted to AADT figures using a NZTA approved method, which is still being evaluated and refined. Data from this monitoring process, the census data and data from regional surveys will be used to calculate cycle trips, trip chains and trip lengths to compare actual regional outcomes to national and regional targets.

OBJECTIVE 2: ASSISTING SAFETY AND PERSONAL SECURITY

KPI – Statistics of transport crashes by mode and type of road Trend: In 2007, 76% of total crashes in NZ involving cars and trucks, 75% of total crashes involving motorcycles, 98% of total crashes involving pedestrians and 96% of total crashes involving cyclists occurred on urban roads. Of these 94% of vehicle and truck crashes, 93% of motorcycling crashes, 99% of pedestrian crashes and 95% of all cycling crashes occurred on urban local roads with speed limits of 70km/h or less. Of the crashes on local roads 21% involving cars and trucks resulted in injuries, 72% involving motorcycles resulted in injuries, 91% involving pedestrians resulted in injuries and 71% involving cyclists resulted in injuries.

From the above it should now be clear that it is the vulnerable users who are more susceptible (by a factor of +3.5) to incur injuries during an accident than those in cars and trucks and that it is important to take steps to protect and minimise injuries to these users. It is with this in mind that safety engineering design is being promoted to enhance vulnerable transport users’ safety.

60 KPI – Casualty statistics for vulnerable user groups and priority action areas

Road Crash Data per Year 2000 2001 2002 2003 2004 2005 2006 2007 2008 Deaths Number of Road Deaths (fatal casualties) 70 74 84 81 93 77 84 61 55 Injury crashes Total casualties (fatal, serious and minor) 3197 3437 3834 4187 4151 4175 4494 4304 4232 Casualties/10,000 Population 27 28 30 32 31 31 33 31 30 Priority Action Areas Alcohol related Deaths 17 16 31 39 39 25 26 22 29 Total casualties 539 525 629 620 660 641 871 701 724 Speed Deaths 16 28 33 39 51 37 33 23 23 Total casualties 568 615 603 718 768 701 810 675 722 Intersections Deaths 15 13 16 22 14 17 19 12 12 Total casualties 1020 1036 1268 1391 1323 1314 1462 1396 1454 Pedestrian Safety Deaths 11 19 14 15 13 8 13 13 6 Total casualties 349 408 422 430 379 345 371 290 329 Motorcycle Safety Deaths 4 5 7 8 8 13 7 4 7 Total casualties 168 169 190 205 192 252 294 355 360 Cycle Safety Deaths 2 3 3 1 0 1 2 0 1 Total casualties 166 154 204 180 179 223 198 192 209 Young driver deaths 7 8 11 9 17 12 13 6 16 Total casualties 565 619 671 801 804 801 915 935 866

Source: NZTA CAS Safety statistics; Veolia.

Note: The priority action areas represent amixture of crash factors and road user types. As a result the casualty data for each priority area may develop i.e. both speed and alcohol can be a factor in one road death. Trends: The casualties per 10,000 population have been relatively constant over the period 2002 to 2007, which is very similar to the trend line found for fatal and serious casualties due to alcohol, speed and intersection related factors. These factors are mainly controlled by means of road policing. While pedestrian casualties are showing a downward trend since 2004, motorcycle casualties are showing an increasing trend with cycle casualties showing no visible trend for the last six years.

6 1 KPI – User’s perceptions of the safety of using different modes of transport (expressed as a percentage)

Year 2000 2002 2004 2006 2008 Private transport 75 77 77 85 86 Passenger transport 62 64 63 69 68 Walk 52 56 57 59 57 Cycle 19 15 24 22 26 Motorcycle - - 22 24 31 Source: ARC’s Community perception’s of transport choices survey. May 2008.

Trend: User perceptions of public transport, walking and cycling as being safe have increased marginally since 2000 (6-7%), but are still lacking far behind that of private transport which has increased by double this margin. The increase in user’s perception of motorcycling as being more safe than cycling is also quite surprising given the number of fatal and serious accidents in this mode. What is disturbing, however, is the lack of progressive growth in user perceptions regarding the safety of using sustainable transport modes. Over the last six years, this has all but stagnated for walking and cycling, with small growth for PT and motorcycling. This should be seen as a cause for concern if growth in the use of sustainable modes is to be become a reality.

OBJECTIVE 3: IMPROVING ACCESS AND MOBILITY

Outcome 1; More passenger transport trips in the region

KPI – Transport trips by mode

Mode 2001 2006 % Increase % of % change share (’000) (‘000) (decrease) total trips since 01 PT - Bus 26 340 28 563 8.44 5.85 -0.52 - Rail 2 418 5 646 133.50 1.16 0.57 Total 28 758 34 209 18.95 7.00 0.04 Private car 360 686 425 400 17.94 87.05 -0.26 Walk 18 747 24 045 28.26 4.92 0.38 Cycle 4 920 5 013 1.89 1.03 0.70 Total 413 111 488 667 18.28

RLTS 2016 target – 11 percent of total trips by passenger transport – 15.5 percent of total trips by active modes Note: The information is updated every five years as it is based on census data.

Identified Trend: Although both bus passenger trips and private car trips have increased relative to their 2001 values their percentage of mode share has declined. This indicates that bus and car trips did not increase at the same rate (or faster) than the growth in total trips, which in the case of private car travel, is considered good. In the case of buses it could be due to mode switching (from bus to train), service requirements or historic factors (i.e. still recovering from the bus strike in 2005) but it could also be due to other reasons. The increase in the total number of car trips is more than likely due to population growth and growth of the vehicle fleet but this should be seen as assumptions pending updated information.

62 KPI – People travelling by PT as a percentage of motorised trips in the Auckland Central Area (AM-peak only)

Year 2000 2002 2004 2006 2008 Private transport 75 77 77 85 86 Passenger transport 62 64 63 69 68 Walk 52 56 57 59 57 Cycle 19 15 24 22 26 Motorcycle - - 22 24 31 Source: ARC Passenger patronage report (Screenline 70) *Motorised patronage reports are only done every three years, with the next to be done in 2009.

Trend: No conclusions can be made in the absence of total trips with regards to attaining the set target. [ARC annual PT patronage and private car survey audits]

Outcome 2; Increase the level of integration between transport modes

KPI – Capacity of RTN and QTN/walk and Cycle/integration points

KPI - User perception regarding the suitability of various modes of transport for journey to work/study for all or most of their journeys (expressed as a percentage of the survey population)

Year 2004 2006 2008 Private transport 67 68 67 Passenger transport 24 25 23 Walk 17 16 17 Cycle 11 7 13 Motorcycle 16 15 26

Note: Survey done every two years Identified Trend: Private transport is still perceived to be the most suitable mode of transport available. The increase in the perception of cycling and motorcycling as suitable modes of transport to work/study is enlightening, as it indicates that transport users are contemplating mode shifts. The reason for this perception change can more than likely be related to the impacts of fuel price volatility, which may force transport users to experiment with different transport choices. Passenger transport is not seen as being the most suitable for all or even most of work/study trips by three out of four people surveyed. This has serious implications for public transport usage, and the reasons for this have to be established in order to progress. Various steps will also have to be taken to make transport more attractive to users such as: g Integrated ticketing efforts and the cooperation of the partners concerned with the effort g Integration of facilities – number of stations, park and rides; ferry terminals, etc for interchange to enhance PT travel

Outcome 3; Deliver public transport services to areas with a transport deprivation index >9

KPI – Level of transport services delivered to deprivation areas >9

Outcome 4; Develop a comprehensive walking and cycling network

KPI – Km of cycle network completed

Year Kilometres 2006 42 2007 74

Identified Trend: The cycle network is growing – mainly due to a push strategy used by Government (MoT) by making funding readily available.

6 3 Outcome 5; Affordability of transport system

KPI – Percentage of household income spend on transport

Year Auckland New Zealand 1998 15.72 17.9 2001 - 15.9 2004 - 16.0 2007 14.24 14.2

Source: Stats NZ. Three yearly Household Expenditure Survey.

Identified Trend: While the percentage of household income spent on transport has declined, given the scarcity of data (two points) it is difficult to identify a trend at this time.

OBJECTIVE 4: PROTECTING AND PROMOTING PUBLIC HEALTH Outcome 1; Protect the air quality

KPI – Number of one hour NO2 exceedances (> 200 µm/m3) per annum in Auckland

Year 2006 2007 % Increase(decrease) Exceedances 1 11 1100 Standard 9 9 Target 0 0 0

Identified Trend: Every one of the eleven exceedances occurred in Queen Street during reconstruction of the road. It is suspected (not proved) that the exceedances were mainly due to the use of diesel powered equipment and construction vehicles.

Outcome 2; Develop and implement plans to enhance public health KPI – Number of TravelWise plans initiated at organisations and percentage reduction in car trips

KPI – Savings due to implementation of sustainable transport plans

Target: 15.5 percent of the total trips to be by active modes. *Determined by means of the AADT method (LTNZ). Based on a morning peak of 4,358 and an evening peak of 4,661 cycle movements on a clear day.

Identified Trend: Patronage of the active modes is increasing and should continue to grow in the foreseeable future. The workplace travel plans that are being implemented to incorporate universities and major employment groups to support walking and cycling will contribute to a large extent in this regard.

Outcome 3; Control noise and vibration impacts caused by transport KPI – Number of noise exceedances (> ?dB) per annum in Auckland

KPI – Number of vibration exceedances (> ?Hz) per annum in Auckland Note: At present, the impact from noise (measured in decibel) and vibration (measured in hertz) resulting from transport induced activities are not being measured or monitored by local authorities or NZTA in the region.

64 OBJECTIVE 5: ENSURING ENVIRONMENTAL SUSTAINABILITY Outcome 1; Transport’s use of energy resources

KPI – Bio and fossil fuel used per VKT and per capita

Year Litres/VKT Litres/capita 2005/6 0.1347 1153 2006/7 0.1353 1150 2007/8 0.1271 1174

Identified Trend: On average, 13 litres of fuel are used per 100 VKT which seems to be on the high side. However, if the assumption is made that a vehicle uses 8l/100km, the 1150 litres will give an annual distance of 14,375km which seems to be average. The decline in litres/VKT could be attributed to an increase in the efficiency of the fleet within the region. The litres per capita data shows an increasing trend, which could be attributed to the decrease in fuel prices in the first part of the monitoring period.

Outcome 2; Roads fitted with storm water treatment KPI – Number of stormwater treatment devices per kilometre

Outcome 3; Regional number of single vehicle trips

KPI – Number of single occupancy vehicle trips in the region

Outcome 4; Regional annual motor vehicle kilometres travelled (VKT) local and highways

KPI - Total motor vehicle kilometres travelled (VKT)

Year Total (Million km) Local (Million km) Highways (Million km) 2006 11,734 7,644 4,090 2007 11,853 7,767 4,086 2008 12,999 7,899 5,100

Identified Trend: There was a slight decline in VKT in 2007, followed by an increase in 2008. The impact of fuel price increases at the end of 2008 can be seen in the decline in highways VKT but there is still an increase in local VKT. Any further movement in VKT due to fuel price volatility will only become ‘visible’ in the 2009 year.

OBJECTIVE 6: SUPPORTING THE AUCKLAND REGIONAL GROWTH STRATEGY

Outcome 1; Percentage of people and employment opportunities within the regional growth nodes

Outcome 2; Walking and cycling capacity available in and between key centres

Outcome 3; Service frequency of passenger transport services between key centres

OBJECTIVE 7: ACHIEVING ECONOMIC EFFICIENCY KPI – Gross transport cost per passenger

KPI – Transport revenue and subsidies per mode of public transport (actual $ values)

KPI – Projects delivering forecasted outcomes (following project completion) within budgeted costs

No outcomes are available at this stage due to lack of monitoring and data. Need list of projects completed e.g. Northern Busway and compare the budgeted with actual costs as well as projected benefits with actual benefits. LTNZ is currently revising the LTP programme to include some of the data requirements.

KPI – Funding allocated versus funding spend

6 5 GLOSSARY

ARC Auckland Regional Council ARTA Auckland Regional Transport Authority ATP Auckland Transport Plan ATSAP Auckland Transport Strategic Alignment Project GPS Government Policy Statement LGAAA Local Government (Auckland) Amendment Act 2004 LTCCP Long Term Council Community Plan LTMA Land Transport Management Act 2003 NLTP National Land Transport Programme NZTA New Zealand Transport Agency NZTS New Zealand Transport Strategy PTNP Passenger Transport Network Plan QTN Quality Transit Network RLTS Regional Land Transport Strategy RTN Rapid Transit Network RTPIS Real Time Passenger Information System SHF State Highway Forecast

Useful websites: Auckland Regional Council www.arc.govt.nz Auckland Regional Transport Authority www.arta.co.nz Northern Busway www.busway.co.nz KiwiRail www.kiwirail.govt.nz RoadSafe Auckland www.roadsafeauckland.org.nz Auckland City Council www.aucklandcity.govt.nz Franklin District Council www.franklin.govt.nz Manukau City Council wwwmanukau.govt.nz North Shore City Council www.northshorecity.govt.nz Papakura District Council www.pdc.govt.nz Rodney District Council www.rodney.govt.nz Waitakere City Council www.waitakere.govt.nz New Zealand Transport Agency www.nzta.govt.nz

66